Ub'^ 


UNIVERSITY  OF  CALIFORNIA 
AT  LOS  ANGELES 


-t> 


<v2e^ 


REPORTS 


OF   THE 


Philippine  Commission 


THE 


CIVIL  GOVERNOR 


AND  THE 


HEADS  OF  THE  EXECUTIVE  DEPARTMENTS  OF 

THE  civil  government  OF  THE 

PHILIPPINE  ISLANDS 


(1900-1903; 


BUREAU  OF  INSULAR  AFFAIRS 
War  Department 


WASHINGTON 

GOVERNMENT    PRINTING    OFFICE 
1904 


•  i 


TbS 


NOTE. 


This  compilation  contains  the  reports  rendered  to  date  by  the 
Philippine  Commission,  the  Civil  Governor  of  the  Philippine  Islands, 
the  secretaries  of  the  executive  departments  of  the  insular  govern- 
ment, the  more  important  acts  of  Congress  relating-  to  the  administra- 
tion of  civil  affairs  in  the  Philippine  Islands,  and  the  inaugural 
addresses  of  Governors  Taft  and  Wright. 

The  various  exhibits  which  appeared  with  these  reports  as  origi- 
nally published,  and  to  which  reference  is  made  in  the  text,  have  been 
omitted  for  the  sake  of  brevity,  as  they  relate  to  the  details  of  admin- 
istration rather  than  to  the  general  development  of  civil  government. 

March  14,  1904. 


156218 


OOTsTTENTS. 


Page. 
Proclamation    of   President  McKinley   appointing  members  of   Philippine 

Commission ^^ 

Instructions  of  the  President  to  the  Philippine  Commission -.----  ^ 

An  act  for  the  establishment  and  maintenance  of  an  efficient  and  honest  civil 

service  in  the  Philippine  Islands 13 

Report  of  the  United  States  Philippine  Commission ^o 

Letter  from  President  McKinley  to  Congress  transmitting  alcove 2b 

Letter  from  Secretary  of  War  to  President  McKinley  t^'aiismitting^bove,,^  23 

Report  of  the  United  States  Philippine  Commission  dated  Noyeniber  30,  1900.}  31 

j  The  civil  service ^^ 

-4the  friars ^^ 

M'ablic  lands - 49 

Civil  government - ^^ 

I  Revenues,  expenditures,  and  surplus '^- 

Municipal  government - ^^-^ 

A  civil  provincial  government  for  Benguet ^^0 

The  Manila  liquor  traffic ''^ 

•  •liliiieral  wealth  and  the  mining  industry - ^* 

\  Copper ^;? 

Coal. 


Gold 
Iron. 


65 
B7 
G7 


,  Necessity  for  mining  laws  and  for  settlement  of  existing  claims G7 

I  First-class  claims  ( Spanish  grants  recorded) 68 

i  Second-class  claims  (incomplete  Spanish  grants) 68 

I  Third-class  claims ^j; 

ijF'orestry - '^ 

I  Market  for  American  products /.^'^ 

Public  health - -  -  -  -  '^ 

Benguet  as  a  health  resort 8i 

Highways,  railroads 87 

Harbor  improvement ^1 

Native  troops  and  police - |^^ 

Legal  procedure ^^ 

Civil  Code )J^ 

Reorganization  of  courts "^ 

R.and  titles  and  registration ^  j^O 

f  Currency '  }^}^ 

(Banks..'. - l%- 

•  Customs :|:|" 

The  present  system  of  internal  taxes 1| ' 

The  urbana  taxes -  |j8 

p]xeinptions j|8 

Stamp  taxes Il*; 

Certificates  of  registration  (cedulas  personales) —  11 J 

Important  receipts  of  the  Spanish  Government  now  suspended 120 

Education  under  Spanish  rule -  l^l 

-Education  in  the  Philippine  Islands  under  American  military  government  IZZ 

Present  educational  outlook j^-J 

School  organization .- j"^ 

Language  l)asis  of  instruction 1^^' 

Compulsory  education 1  ;^ ' 

Night  schools 1"" 

V 


\  I  (^)NTENTS. 

Ki'jHirt  of  tho  ruit*-*!    Skitc-    IMiili|i|>iii>-    ( 'oimiii-siiiii    ilaU-il    Novrmlxr  .'lO, 
1;hH>— C'oMlimu'd. 

'  SupjMirt  »>f  M'liiMil^  .  '-' 

Noriunl  scIuhiIh '-' 

Naulinil  si'liool  1^7 

Military  s.-liool 128 

Airriiultiinil  si'hool 1^8 

Ti-iuK'  si-liools l|i« 

IVstituti>  iiiul  rrimiiial  rhiltlron >>^. l^-' 

.  [Hirt  »>f  tlu>  rnitctl  Statt's  IMiilippiiio  Cominissinii,  1!)()1 l^l  *■ 

Thi>  work  of  tin-  t'oininissioii 133 

Tho  oiyaiiiziition  of  proviiu-ial  >rov('riiiiu'iitH 133 

The  army  ami  \\\v  poopK' 137 

Till-  ciMitral  pivt-niim-iif 140 

Tho  insular  i>iiriliasiii^'  a;rt'nt H^ 

Coniinittoi's  of  C'oimnissioii 143 

Ctenenil  theory  in  formation  of  tlu'  jroviTiimi-nt 143 

I  Tho  livil  eorviV-c 147 

J  Fidolity  Ivontls 148 

L^riars'  huula 148 

T San  .lose  ColloRe  oase 1 49 

iTaxation loO 

Tho  lahor  probU-m 151 

Tho  comnnssjirv 151 

^ariff  rolationn'with  tho  Fnitod  Statos 152 

Tbt'  oitv  of  Manila 152 

P'uhlio  ian.ls 153 

Munioipal  ^lovorninonts 154 

The  Bon^'uet  povornniont 157 

Non-Christian  tribes 159 

ffurestry 162 

I  ^1  ines 1 72 

Agriculture 1 73 

'  Fislierien 1 74 

Weather  bureau 174 

Public  health 175 

Civil  hospital 178 

Government  laboratories 179 

Philippines  Constabulary -  181 

Railroads 184 

Hureau  of  c< last  guard  and  transportation 1 90 

Postal  service 193 

Harbor  imjirovement 194 

Coast  and  geodetic  survey 195 

H  igh  ways 196 

Administration  of  justice 197 

Reorganization  of  courts 200 

Comments  upon  the  jjidicial  system 206 

The  new  Code  of  Civil  Procedure 210 

Criminal  Code 214 

C<»<le  of  Criminal  I'rocedure 215 

CTivil  Code 215 

I'liegistration  of  land  titles 215 

Insular  cold-storage  anrl  ice  jilant 216 

Currency  now  in  use 219 

Pro{M>sed  new  coinage 22S 

Hanks  and  banking TlfS  ■*- 

Neoil  fnr  a  mortgage  bank 283 

(Jenenil  conrlition  of  the  treasury 2.35 

Seize<l  funds  and  H|>e<'ial  deposits  in  the  treasury 236 

Inwiar  budg«'t 238 

P>ndg»-t  for  the  city  of  .Manila 242 

|tf*ust/Miis  tariff 245 

I  Custom-  adniinistnitive  bill 246 

\  Tho  cuytoms  service 246 

I  Internal  revenue 248 

The  public  records 254 


CONTENTS.  VII 

Page. 
Report  of  the  United  States  Philippine  Commission,  1901 — Continueil. 

Public  printing 256 

Bureau  of  architecture  and  construction 256 

h' — Organization  of  public  instruction 257 

Transportation,  reception,  and  assignment  of  teachers 258 

'"  Manila  primary  schools 261 

^  The  Manila  trade  school 26-4 

Instructit)n  in  telegraphy 265 

—-Manila  Normal  School 267 

^  School  of  agriculture 269 

(-Statistics  of  pupils 269 

—  Demand  for  more  teachers 270 

^  Nautical  school - 271 

"^Sending  students  to  America 271i^ 

Summary  of  recommendations 272 

Chapter  803. — An  act  making  appropriation  for  the  support  of  the  army  for 

the  fiscal  year  ending  June  30,  1902 275 

An  act  providing  for  the  organization  of  the  departments  of  the  interior,  of 

commerce  and  police,  of  finance  and  justice,  and  of  public  instruction 275  *^^ 

Inaugural  address  of  the  civil  governor 277 

Letter  from  the  President  to  Congress  transmitting  report  of  1902 283 

Letter  from  the  Secretary  of  War  to  the  President  transmitting  report  for  1902.  283 

Report  of  the  United  States  Philippine  Commission,  1902  L . .  .x 285 

Report  of  the  civil  governor,  1902 293 

General  conditions 293 

General  conditions  of  the  Filipino  proAdnces 295 

The  labor  question 301 

-f-  /the  friars'  lands - 304 

Office  of  the  exceutive  secretary 305 

Pro^dncial  governments 305 

Civil  service  board 308 

Insular  purchasing  agent 309 

The  city  of  Manila 310 

Benguet 311 

-'Department  of  commerce  and  police 312 

Constabulary 312 

Bureau  of  posts 315 

Coast  guard  and  transportation 316 

Coast  and  geodetic  survey 317       / 

I  Franchises  and  corporations 317   *^ 

Coastwise  trade 318 

Improvement  of  the  port 318 

Consulting  engineer 318 

Report  of  the  secretary  of  the  interior,  1902 321 

The  board  of  health  for  the  Philippine  Islands  and  the  city  of  Manila 321 

Legislation  recommended  by  the  board -  322 

Organization  of  provincial  and  municipal  boards  of  health 322 

Serum  and  vaccine  institutes 324 

Contagious-disease  hospital 324 

Special  work  of  the  board  in  Manila 324 

Epidemics 325 

Bubonic  plague 325 

The  cholera  epidemic 327 

Cholera  work  in  Manila 328 

Cholera  hospitals  and  detention  camps 329 

Opposition  to  cholera  work  in  INIanila 330 

Results  of  cholera  work  in  Manila 331 

The  epidemic  in  the  provinces 333 

Death  of  Doctor  Meacham 334 

Death  of  Dr.  J.  L.  Mudge - 334 

Special  mention  of  the  services  of  other  health  officers 334 

The  quarantine  service 336 

Civil  hospital : 337 

Civil  sanitarium  at  Baguio,  Benguet 338 

.  /      The  proposed  leper  colony 340 

*^he  forestry  bureau 3'*1 

Increase  in  working  force 342 


YIII  CONTENTS. 

Page. 
Kei>ort  of  the  secretary  of  the  interior,  1902 — Continued. 
The  forestry  bureau — Continued. 

Botanical  eolleetions 342 

Forestry  regulations 343 

-^hilijipine  sawmills 343 

Extent  of  forest  lands 344 

Rublx'r  and  gutta-i>erclia 344 

Quantitii'S  of  fttrest  products  taken  from  public  lands  during  the  liscal 

''    year  ending  June  30,  1902 346 

Mining  bureau 346 

Mineralogical  and  geological  surveys 347 

Legislation  recommended 348 

Bureau  of  patents,  copj'rights  and  trade-marks 348 

Bureau  of  government  laboratories 349 

The  serum  institute 351 

Work  of  the  chemical  laboratory 352 

Work  of  the  biological  laboratory 353 

/      Locust  fungus 354 

np4*ublic  lands 354 

Legislation  recommended 355 

^Present  state  of  agriculture 357 

The  bureau  of  agriculture 358 

Soil  investigation 360  • 

Fiber  investigations 360 

Work  in  Batangas  Province 361 

Farmers'  bulletins 361 

Experimental  work  at  Baguio,  Benguet 361 

Agricultural  opportunities  in  the  Philippines 362 

Future  work  of  the  bureau  of  agriculture 364 

Weather  bureau 365 

New  apparatus 366 

Crop  service 366 

Eeports 366 

Astronomical  and  magnetic  work 366 

Bureau  of  non-Christian  tribes 366 

Report  of  the  secretary  of  finance  and  justice 369 

Administration  of  justice 369 

New  legislation  relating  to  courts 370 

Attorney -general's  office 374 

Criminal  code 375 

Code  of  criminal  procedure 375 

/Registration  of  land  titles 375 

Insular  cold-storage  and  ice  plant 376 

Currency 377 

Banks  and  banking 385 

General  condition  of  the  treasury 386 

Seized  funds  and  special  deposits 387 

Insular  budget - 388 

Budget  of  the  city  of  Manila 389 

Customs  tariff 390\ 

■  Internal  revenue - 393 

Financial  conditions  of  the  provinces  and  municipalities 395v 

/  Report  of  the  secretary  of  public  instruction 399 

Organization  of  public  instruction 399 

The  American  teachers 401 

The  Filipino  teachers 403 

Manila  normal  school 405 

Teacher's  college 406 

Provincial  schools  of  secondary  instruction 407 

Normal  institutes 409 

Municipal  support  of  normal  school  students 411 

Sending  Filipino  students  to  America 412 

Language  of  the  schools 412 

Industrial  education 413 

Education  of  the  Igorrotes 415 


CONTENTS.  IX 

Page. 
Report  of  the  secretary  of  pnlilic  instruction — Continued. 
Organization  of  public  instruction — Continued. 

The  Negritos 415 

Education  of  the  Moros 416 

-Local  self-help  in  educational  affairs 416 

Instruction  in  agriculture 418 

Compulsor}'  school  attendance 418 

Night  schools 419 

Nautical  school 420 

School  of  telegraphy 421 

Municipal,  provincial,  and  insular  supjiort  of  schools 421 

Construction  and  repair  of  public  buildings 422 

Training  of  workmen 425 

Public  printing 426 

Archives 427 

The  American  circulating  library 428 

The  museum 429 

Statistics 432 

The  census 483 

The  official  gazette 433 

An  act  temporarily  to  provide  revenue  for  the  Philippine  Islands,  and  for  other 

purposes '  435 

An  act  temporarily  to  provide  for  the  administration  of  the  affairs  of  civil  gov- 

er^ment  in  the  Philippine  Islands,  and  for  other  purposes 438 

v/Mineral  lands 444^         i^ 

—^Authority  of  the  Philippine  Islands  government  to  purchase  lands  of  [vv*v 

religious  orders  and  others  and  issue  bonds  for  purchase  price 454 

Municipal  bonds  for  public  improvements 455 

Franchises 457 

Coinage 458 

Bureau  of  insular  affairs 460 

An  act  to  establish  a  standard  of  value  and  to  provide  for  a  coinage  system  in 

Philippine  Islands ^. 461 

Annual  report  of  the  Philippine  Commission.  1M3^ 465 

Keport  of  the  civil  governor,  1903 475 

Conditions  as  to  tranquillity 483 

The  use  of  scouts  with  the  constabulary 491 

Reconcentration 492 

Bandolerismo  statute 492 

Dissolute  Americans  and  vagrancy  acts 495 

■  t^riars'  lands  and  religious  questions 496 

Business  conditions 505  v^ 

^Proposed  official  inspection  and  classification  of  hemp 508 

Sugar 509 

/Tobacco 512 

The  labor  question 512 

The  effect  of  labor  on  the  investments  of  capital 514u^ 

Railroad  and  other  construction 515 

Health 515 

Schools. 517 

The  Philippine  exhibit  at  the  Louisiana  Purchase  Exposition  at  St.  Louis. .  518 

The  census 520 

Opium 521 

Civil  service 521 

The  coastwise  laws 529 

The  insular  revenues 531 

Office  of  the  insular  purchasing  agent 533 

Provincial  and  municipal  governments 534 

The  government  of  the  Moro  Province 534 

The  Christian  Filipino  provinces 540 

Municipalities 541 

Justices  of  the  peace 544 

The  city  of  Manila 544 

The  port  works 548 

Executive  bureau 549 


X  CONTENTS. 

Page. 

Report  of  the  secretary  of  tlie  interior 551 

Organization  of  the  department 551 

The  board  of  health  for  the  I'hilippinc  Islands  and  tlii^  city  of  Manila 551 

Kinderpest 552 

Health  work  in  Manila 552 

Death  rate  of  IManila 553 

Infant  mortality 553 

Deat li  rate  in  different  districts  of  the  city 554 

Lack  of  medical  attendance 554 

Birth  rate 554 

Need  of  pnblic  bath  houses  and  laundries 554 

A  new  water  supply  an  imperative  necessity 555 

Foul  wells  in  Manila 556 

Sewer  system 556 

Plan  for  improving  the  esteros 557 

Sunken  lands  in  Manila 557 

Disposal  of  garbage 558 

Disposition  of  night  soil 558 

Congestion  in  populous  districts 558 

The  floating  population  of  Manila 559 

Sanitary  markets  and  unsanitary  fi  )od  shops 559 

Need  of  a  general  hospital 560 

Contagious  disease  hospitals 561 

Need  of  insane  asylum 561 

Leper  colony 561 

Free  dispensary 561 

New  morgue 561 

Loss  of  property  in  Trozo  fire 562 

Unhealthful  condition  of  Bilibid  prison 562 

Board  of  health  sujiported  by  Manila  courts 562 

Sanitary  laws  not  satisfactory 562 

Legislation  drafted  by  the  board 563 

The  cholera  eijidemic 563 

Bubonic  plague 565 

Smallpox 565 

Small  number  of  deaths  from  malaria 566 

Deaths  from  dysentery 566 

Num  ber  of  lepers  in  the  Philippines 566 

Beriberi  in  Manila 566 

Inspection  of  animals 566 

Prevention  of  rinderpest 566 

Quarantining  of  imported  animals  necessary 567 

Locust  pest 567 

Sanitary  conditions  in  the  provinces 568 

The  quarantine  service 568 

The  civil  hospital 570 

The  civil  sanitarium  at  Bagnio,  Benguet 571 

Change  in  rates  at  sanitarium 572 

Government  cottages  on  sanitarium  grounds 572 

Reorganization  of  sanitarium  employees 572 

New  sanitarium  buildings  needed 573 

Improvement  of  sanitarium  grounds 573 

/        Work  of  the  sanitarium 573 

V  The  forestry  bureau 573 

^Modifications  in  forestry  laws 574 

New  employees  of  the  forestry  bureau 574 

Visit  of  the  chief  of  the  United  States  Bureau  of  Forestry 574 

Division  of  inspection 575 

Division  of  forest  management 575 

Need  of  a  steamer  to  facilitate  inspection 576 

Licenses 576 

Fear  of  extensive  exploitation  of  Philippine  forests  by  lumber  com- 
panies groundless 576 

Special  privileges  granted  to  the  Army 577 

Work  of  the  timber-testing  lal  )oratory 577 

Workshop  of  the  forestry  bureau 578 


CONTENTS.  ^I 

Page, 

Report  of  the  secretary  of  the  interior— Continued. 
The  forestry  Ijureau— Continued. 

Identification  of  woods  by  microscopic  sections -^^o 

Botanical  work Vyg 

Investigation  of  dyewoods _„„ 

Work  of  the  forest  reservation  m  Bataan ^1|^ 

vfrivate  woodlands -  -  -. —  -  -  -  —  ','; 'A.', --a 

Amount  of  forest  products  from  public  lands  in  1902  an<  I  U-O., o  /  y 

.Imports  and  exports  of  forest  products - -J^" 

Expenses  of  forestry  bureau '^°^ 

The  mining  bureau : "  ■•^V  1"  L"  i  'i i J.,V 

Reorganization  of  the  mining  bureau  to  tacihtate  field  work  recom-  ^^^ 

mended - cr>^ 

Active  mining  operations  begun ''° 

Mineralogical  map  of  the  Philippines -  -  -  ^^| 

Recommendations  of  chief  of  mining  bureau oo^^ 

Field  trips - gg2 

Additions  to  collections r " " " "x; "I-' t^«9 

Plan  for  exhibit  at  the  Louisiana  Purchase  Exposition - o»^ 

Bureau  of  government  laboratories - - __„ 

Opening  of  laboratories  to  the  public - ^°^ 

Buildings - ^g^ 

The  serum  laboratory -  - ^gg 

Library - egg 

New  apparatus  and  supplies _^gg 


Assav  v.ork . 


586 


Gas  supply - c,on 

Character  of  chemical  work  done ^°" 

The  biological  laboratory - ^g^ 

Diagnostic  work gg_ 

Original  investigation _gg 

Acting  director  appointed ^°^ 

Entomological  work  begun - ^°° 


Botanical  work 


588 


Sectioning  woods -  -  - " '  cqq 

Marine  biological  laboratory  recommended -  -  -  ^^» 

The  government  photographer - -  -  -  ^^^ 

Working  force -  -  - - coq 

/     Reorganization  of  the  bureau  needed - - ---  ^^^ 

Sa'he  bureau  of  public  lands --:--; " c;qi 

Legislation  drafted  by  the  chiet  of  the  bureau - -  -  -  -  ^^^ 

Plan  for  government  surveys ^.^2 

Spanish  land  titles - ^09 

Draft  of  instructions  to  deputy  mineral  surveyors -J^- 

Administration  of  San  Lazaro  estate - - ^^-1 

Congressional  legislation  needed - ^^^ 

The  bureau  of  agriculture ^gg 

Changes  in  working  force - j^q. 

Work  of  the  clerical  force ^q' 

Publications  of  the  bureau ^„^ 

Seed  and  plant  distribution „ 

Proposed  improvement  of  native  fruits ^^^ 

Experiments  in  growing  coffee ^g 

Fiber  investigations - ^gg 

Experiment  station  at  IVIanila - ' 

Government  farm  at  San  Ramon "    • 

Experiment  station  in  F.atangas - '    ^ 

Experiments  at  Baguio,  Benguet ^!JJ^ 

Agricultural  college gQ^ 

Animal  industry - ..-^.^ 

Care  of  carabaos  iinported  l)y  the  government ^J^- 

Government  rice  farm gQ^ 

The  weather  bureau gg'^ 

Weather  stations gg^ 

New  instruments gg^ 

Crop  service " gg^ 

Establishment  of  storm  signals 


XII  CONTENTS. 

Page. 
Report  of  the  pcorotary  of  the  interior — Continued. 
The  weather  liincau — Continued. 

rubUeations  of  the  bureau G05 

Exliibit  at  tiie  1  Louisiana  Purehase  Exposition 605 

Kepaira  of  instruments 605 

Astrononiieal  work 606 

Ma,u;netie  ol).«ervatory 606 

Promotion  without  eomjjetitive  examination  authorized 606 

The  etlinolopcal  survey  for  the  PliiHppine  Islands 606 

Neeessity  for  survey 607 

Transfer  of  tlie  ehief  of  the  bureau 607 

Work  of  tlie  survey 607 

Report  of  the  secretary  of  commerce  and  police 611 

Tele<j;rai)h  division 619 

Civil  supply  store 620 

Bureau  of  coast  guard  and  transportation 620 

Light-house  division 62;^ 

Bureau  of  posts 623 

Bureau  of  engineering 628 

Pamsipit  River  improvement _ 625 

Tarlac  and  Pampanga  rivers 625 

Benguet  improvement  work 625 

Electric  power  for  Manila 628 

Highways 629 

Bureau  of  coast  and  geodetic  survey 629 

Second  annual  report  of  the  secretary  of  finance  and  justice 631 

Administration  of  justice 631 

New  legislation  relating  to  the  supreme  court  and  courts  of  first  instance 632 

The  court  of  customs  appeals  and  new  legislation  relating  thereto 634 

X^he  court  of  land  registration 636 

Attorney-general's  office -  640 

Criminal  Code 641 

Code  of  Criminal  Procedure 641 

Changes  in  the  personnel  of  the  courts 642 

Insular  cold  storage  and  ice  plant 643 

Currency 645 

Banks  and  banking 654  , 

The  treasury 655v 

Seized  funds  and  special  deposits 661 

Insular  budget 661 

Budget  of  the  city  of  Manila 665 

The  customs  service  and  the  tariff 666 

Coastwise  laws 673 

Internal  revenue - 676    , 

Financial  condition  of  the  provinces  and  municipalities 678  y  y 

Summary  showing  financial  condition  of  provinces 678  v 

Second  annual  report  of  the  secretary  of  public  instruction 685 

Public  instruction  under  Spanish  rule 685 

1        Public  instruction  since  American  occupation 689 

^        Organization .'. . .  1 . . . i ■ '...:' 691 

The  teaching  force 691 

Attendance 693 

Relations  of  American  teachers  to  the  people 695 

Schoolhouses 696 

Moro  province 696 

The  work  accomplished  and  that  w^hich  remains  to  be  done 697 

Changes  of  supervisory  personnel 698 

Appropriations,  expenditures,  and  unexpended  balances 698 

Bureau  of  architecture  and  construction  of  public  buildings 699 

Office  personnel  and  other  employees 699 

Work  of  the  bureau  during  the  year 699 

Bureau  of  i)ublic  printing 701 

Bureau  of  archives,  including   the   bureau  of  patents,   copyrights,  and 

trade-marks 704 

American  Circulating  Library 705 

Museum  of  ethnology,  natural  history,  and  connnerce 706 


CONTENTS.  XIII 

Page. 
Second  annual  report  of  the  secretary  of  public  instruction — Continued 

-Bureau  of  statistics 707 

-Census  l)ureau 707 

-The  official  gazette 709 

Jixhibit  A. — Keport  of  the  general  superintendent  of  education 710 

Aims  of  primary  education  in  the  Philippines 710 

Inaugural  address  l)y  Hon.  Luke  E.  ii-iight,  civil  governor  of  the  Philippme 

Islands,  Manila,  P.  I.,  February  4,<j^0|/. 723 

The  civil  commission,  policy  of  attraction,  results 723 

Fnture  work,  railroad  building,  agriculture 725 

-Che  friar  lands 727 

Currency 727 

Future  policy 728 

Conclusion 729 


WILLIAM  McKINLEY 

President  of  the  United  States. 

To  all  vtho  sJudl  see  these  Presents^  Greeting: 

Know  Ye,  That  reposing  special  trust  and  confidence  in  the  integ- 
rity and  ability  of  William  H.  Taft,  of  Ohio,  I  do  appoint  him  a 
Commissioner  to  the  Philippine  Islands,  and  do  authorize  and  empower 
him  to  execute  and  fulfill  the  duties  of  this  commission,  with  all  the 
powers,  privileges  and  emoluments  thereunto  of  right  appertaining, 
during  the  pleasure  of  the  President  of  the  United  States  for  the 
time  being. 

In  testimony  whereof,  I  have  caused  these  letters  to  be  made  patent, 
and  the  seal  of  the  United  States  to  be  hereunto  affixed. 

Given  under   my  hand  at  the  City  of   Washington,  the  16th  day 

of   March   in  the  year  of    our   Lord  one  thousand   nine   hundred, 

and  of  the  Independence  of   the   United   States 

[Sealj  ^^  America  the  one  hundred  and  twenty-fourth. 

William  McKinley. 

By  the  President: 

John  Hay, 

Secretary  of  State. 

Same  mutatis  mutandis  to — 

Dean  C.  Worcester,  of  Michigan. 
Luke  E.  Wright,  of  Tennessee. 
Henry  C.  Ide,  of  Vermont. 
Bernard  Moses,  of  California. 


INSTRUCTIONS  OF  THE  PRESIDENT 
TO   THE    PHILIPPINE    COMMISSION 

APRIL  7,  1900 


Commissioners 

Hois'.  WILLIAil    H.  TAPT,  of  Ohio 
Prof.  DEAN   C  WORCESTER,  of  Michigran 
Hon.  LUKE   E.  V.'RIGHT,  of  Tennessee 
Hon.  HENRY  C.  IDE,  of  Vermont 
Prof.  BERNARD   MOSES,  of  California 


23181—04- 


War  Department, 

Wa^himjton,  April  7,  1900. 
Sir:  1  transmit  to  3^011  herewith  the  instructions  of  the  President 
I'oj-  the  guidance  of  yourself  and  your  associates  as  Commissioners  to 
the  Philippine  Islands. 

Very  respectfully,  Elihu  Root, 

Secretary  of  War. 
Hon.  William  H.  Taft, 

•  President  Board  of  Commissioners 

to  the  Philippine  Islands. 

3 


Executive  Mansion,  Ap7^U  7,  1900. 
The  Secretary  of  War, 

Washington. 

Sir  :  In  the  message  transmitted  to  the  Congress  on  the  5th  of 
December,  1899,  I  said,  speaking  of  the  Philippine  Islands:  "As  long 
as  the  insurrection  continues  the  military  arm  must  necessaril}'  be 
supreme.  But  there  is  no  reason  why  steps  should  not  be  taken  from 
time  to  time  to  inaugurate  governments  essentiall}^  popular  in  their 
form  as  fast  as  territoiy  is  held  and  controlled  b}'  our  troops.  To 
this  end  I  am  considering  the  advisability  of  the  return  of  the  com- 
mission, or  such  of  the  members  thereof  as  can  be  secured,  to  aid  the 
existing  authorities  and  facilitate  this  work  throughout  the  islands." 

To  give  effect  to  the  intention  thus  expressed  I  have  appointed 
Hon.  William  H.  Taft,  of  Ohio;  Prof.  Dean  C.  Worcester,  of  Mich- 
igan; Hon.  Luke  E.  Wright,  of  Tennessee;  Hon.  Henry  C.  Ide,  of 
Vermont,  and  Prof.  Bernard  Moses,  of  California,  commissioners  to 
the  Philippine  Islands  to  continue  and  perfect  the  work  of  organizing 
and  establishing  civil  government  already  commenced  by  the  military 
authorities,  subject  in  all  respects  to  anj^  laws  which  Congress  maj^ 
hereafter  enact. 

The  commissioners  named  will  meet  and  act  as  a  board,  and  the 
Hon.  William  H.  Taft  is  designated  as  president  of  the  board.  It  is 
probable  that  the  transfer  of  authority  from  military  commanders  to 
civil  officers  will  be  gradual  and  will  occupy  a  considerable  period. 
Its  successful  accomplishment  and  the  maintenance  of  peace  and  order 
in  the  meantime  will  require  the  most  perfect  cooperation  between  the 
civil  and  military  authorities  in  the  island,  and  both  should  be  directed 
during  the  transition  period  by  the  same  Executive  Department.  The 
conmiission  will  therefore  report  to  the  Secretary  of  War,  and  all 
their  action  will  be  subject  to  your  approval  and  control. 

You  will  instruct  the  commission  to  proceed  to  the  cit}'  of  Manila, 
where  they  will  make  their  principal  office,  and  to  communicate  with 
the  military  governor  of  the  Philippine  Islands,  whom  you  will  at  the 
same  time  direct  to  render  to  them  every  assistance  within  his  power 
in  the  performance  of  their  duties.  Without  hampering  them  b}'  too 
specific  instructions,  they  should  in  general  be  enjoined,  after  making 
themselves  familiar  with  the  conditions  and  needs  of  the  country,  to 
devote  their  attention  in  the  first  instance  to  the  establishment  of 
municipal  governments,  in  which  the  natives  of  the  islands,  both  in 
the  cities  and  in  the  rural  communities,  shall  be  afforded  the  oppor- 

5 


6  rei'ort:^  of  thp:  civil  government 

tunity  to  manage  their  own  local  affairs  to  the  fullest  extent  of  which 
they  are  capable,  and  subject  to  the  least  decree  of  supervision  and 
control  which  a  careful  study  of  their  capacities  and  observation  of 
the  workings  of  native  control  show  to  be  consistent  with  the  mainte- 
nance of  law,  order,  and  loyalty. 

The  next  subject  in  order  of  importance  should  be  the  organization 
of  government  in  the  larger  administrative  divisions  corresponding  to 
counties,  departments,  or  provinces,  in  which  the  common  interests  of 
many  or  several  municipalities  falling  within  the  same  tribal  lines,  or 
the  same  natural  geographical  limits,  ma}^  best  be  subserved  by  a 
common  administration.  Whenever  the  commission  is  of  the  opinion 
that  the  condition  of  affairs  in  the  islands  is  such  that  the  central 
administration  may  safely  be  transferred  from  military  to  civil  con- 
trol, they  will  report  that  conclusion  to  you,  with  their  recommenda- 
tions as  to  the  form  of  central  government  to  be  established  for  the 
purpose  of  taking  over  the  control. 

Beginning  with  the  1st  day  of  September,  1900,  the  authority  to 
exercise,  subject  to  my  approval,  through  the  Secretary  of  AVar,  that 
part  of  the  power  of  government  in  the  Philippine  Islands  which  is  of 
a  legislative  nature  is  to  be  transferred  from  the  military  governor 
of  the  islands  to  this  commission,  to  be  thereafter  exercised  by  them 
in  the  place  and  stead  of  the  military  governor,  under  such  rules  and 
regulations  as  you  shall  prescribe,  until  the  establishment  of  the  civil 
central  government  for  the  islands  contemplated  in  the  last  foregoing 
paragraph,  or  until  Congress  shall  otherwise  provide.  Exercise  of 
this  legislative  authority  will  include  the  making  of  rules  and  orders, 
having  the  effect  of  law,  for  the  raising  of  revenue  by  taxes,  customs 
duties,  and  imposts;  the  appropriation  and  expenditure  of  public  funds 
of  the  islands;  the  establishment  of  an  educational  system  throughout 
the  islands;  the  establishment  of  a  system  to  secure  an  efficient  civil 
service;  the  organization  and  establishment  of  courts;  the  organiza- 
tion and  establishment  of  municipal  and  departmental  governments, 
and  all  other  matters  of  a  civil  nature  for  which  the  military  governor 
is  now  competent  to  provide  by  rules  or  orders  of  a  legislative  character. 

The  commission  will  also  have  power  during  the  same  period  to 
appoint  to  office  such  officers  under  the  judicial,  educational,  and  civil- 
service  systems  and  in  the  municipal  and  departmental  governments  as 
shall  be  provided  for.  Until  the  complete  transfer  of  control  the  mil- 
itary governor  will  remain  the  chief  executive  head  of  the  government 
of  the  islands,  and  will  exercise  the  executive  authority  now  possessed 
by  him  and  not  herein  expressly  assigned  to  the  commission,  subject, 
however,  to  the  rules  and  orders  enacted  by  the  commission  in  the 
exercise  of  the  legislative  powers  conferred  upon  them.  In  the  mean- 
time the  municipal  and  departmental  governments  will  continue  to 
report  to  the  military  governor  and  be  subject  to  his  administrative 


OF   THE    PHILIPPINE    ISLANDS,   1900-1903.  7 

supervision  and  control,  under  your  direction,  Init  that  supervision 
and  control  will  be  confined  within  the  narrowest  limits  consistent 
with  the  requirement  that  the  powers  of  government  in  the  municipal- 
ities and  departments  shall  be  honestly  and  effectively  exercised  and 
that  law  and  order  and  individual  freedom  shall  be  maintained. 

All  legislative  rules  and  orders,  establishments  of  government,  and 
appointments  to  office  by  the  commission  will  take  effect  immediately, 
or  at  such  times  as  they  shall  designate,  subject  to  your  approval  and 
action  upon  the  coming  in  of  the  commission's  reports,  which  are  to 
be  made  from  time  to  time  as  their  action  is  taken.  Wherever  civil 
governments  are  constituted  under  the  direction  of  the  commission, 
such  military  posts,  garrisons,  and  forces  will  be  continued  for  the 
suppression  of  insurrection  and  brigandage,  and  the  maintenance  of 
law  and  order,  as  the  militar}^  commander  shall  deem  requisite,  and 
the  militar}"  forces  shall  be  at  all  times  subject  under  his  orders  to  the 
call  of  the  civil  authorities  for  the  maintenance  of  law  and  order  and 
the  enforcement  of  their  authority. 

In  the  establishment  of  municipal  governments  the  commission  will 
take  as  the  basis  of  their  work  the  governments  established  by  the 
military  governor  under  his  order  of  August  8,  1899,  and  under  the 
report  of  the  board  constituted  b}^  the  militar}"  governor  b}'  his  order 
of  January  29,  1900,  to  formulate  and  report  a  plan  of  municipal  gov- 
ernment, of  which  his  honor  Ca3-etano  Arellano,  president  of  the 
audiencia,  was  chairman,  and  the\'  will  give  to  the  conclusions  of  that 
board  the  weight  and  consideration  which  the  high  character  and  dis- 
tinguished abilities  of  its  members  justify. 

In  the  constitution  of  departmental  or  provincial  governments, 
they  will  give  especial  attention  to  the  existing  government  of  the 
island  of  Negros,  constituted,  with  the  approval  of  the  people  of  that 
island,  under  the  order  of  the  militarj'  governor  of  July  22,  1899,  and 
after  verifying,  so  far  as  may  be  practicable,  the  reports  of  the  suc- 
cessful working  of  that  government,  they  will  be  guided  by  the  expe- 
rience thus  acquired,  so  far  as  it  ma}'  be  applicable  to  the  condition 
existing  in  other  portions  of  the  Philippines.  They  will  avail  them- 
selves, to  the  fullest  degree  practicable,  of  the  conclusions  reached  by 
the  previous  commission  to  the  Philippines. 

In  the  distribution  of  powers  among  the  governments  organized  by 
the  commission,  the  presumption  is  always  to  be  in  favor  of  the 
smaller  subdivision,  so  that  all  the  powers  which  can  properl}'  be 
exercised  by  the  municipal  government  shall  be  vested  in  that  govern- 
ment, and  all  the  powers  of  a  more  general  character  which  can  be 
exercised  by  the  departmental  government  shall  be  vested  in  that 
government,  and  so  that  in  the  governmental  system,  which  is  the 
result  of  the  process,  the  central  government  of  the  islands,  following 
the  example  of  the  distribution  of  the  powers  between  the  States  and 


8  KKPOKTS    OF    THE    CIVIL    GOVERNMENT 

the  National  (lovornnient  of  the  United  States,  shall  have  no. direct 
administration  except  of  matters  of  purely  o-eneral  eoncern,  and  shall 
have  onl}'  such  supervision  and  control  over  local  governments  as  may 
be  necessary  to  secure  and  enforce  faithful  and  efficient  administra- 
tion b}'  local  officers. 

The  many  different  degrees  of  civilization  and  varieties  of  custom 
and  capacity  among  the  people  of  the  different  islands  preclude  very 
definite  instruction  as  to  the  part  which  the  people  shall  take  in  the 
selection  of  their  own  officers;  but  these  general  rules  are  to  be 
observed:  That  in  all  cases  the  municipal  officers,  who  administer 
the  local  affairs  of  the  people,  are  to  be  selected  by  the  people,  and 
that  wherever  officers  of  more  extended  jurisdiction  are  to  be  selected 
in  an}'^  way,  natives  of  the  islands  are  to  be  preferred,  and  if  they  can 
be  be  found  competent  and  willing  to  perform  the  duties,  they  are  to 
receive  the  offices  in  preference  to  an}"  others. 

It  will  be  necessary  to  fill  some  offices  for  the  present  with  Ameri- 
cans which  after  a  time  may  well  be  filled  b}^  natives  of  the  islands. 
As  soon  as  practicable  a  system  for  ascertaining  the  merit  and  fitness 
of  candidates  for  civil  office  should  be  put  in  force.  An  indispensable 
qualification  for  all  offices  and  positions  of  trust  and  authority  in  the 
islands  must  be  absolute  and  unconditional  loyalty  to  the  United  States, 
and  absolute  and  unhampered  authorit}'  and  power  to  remove  and 
punish  an}"  officer  deviating  from  that  standard  must  at  all  times  be 
retained  in  the  hands  of  the  central  authority  of  the  islands. 

In  all  the  forms  of  government  and  administrative  provisions  which 
they  are  authorized  to  prescribe,  the  commission  should  bear  in  mind 
that  the  government  which  they  are  establishing  is  designed  not  for 
our  satisfaction,  or  for  the  expression  of  our  theoretical  views,  ))ut  for 
the  happiness,  peace,  and  prosperity  of  the  people  of  the  Philippine 
Islands,  and  the  measures  adopted  should  be  made  to  conform  to  their 
customs,  their  habits,  and  even  their  prejudices,  to  the  fullest  extent 
consistent  with  the  accomplishment  of  the  indispensable  requisites  of 
just  and  effective  government. 

At  the  same  time  the  conmiission  should  bear  in  mind,  and  the  peo- 
ple of  the  islands  should  be  made  plainly  to  understand,  that  there  are 
certain  great  principles  of  government  which  have  been  made  the 
basis  of  our  governmental  system  which  we  deem  essential  to  the  rule 
of  law  and  the  maintenance  of  individual  freedom,  and  of  which  they 
have,  unfortunately,  been  denied  the  experience  possessed  by  us;  that 
there  are  also  certain  practical  rules  of  government  which  we  have 
found  to  be  essential  to  the  preservation  of  these  great  principles  of 
liberty  and  law,  and  that  these  principles  and  these  rules  of  govern- 
ment must  be  established  and  maintained  in  their  islands  for  the  sake 
of  their  liberty  and  happiness,  however  much  they  may  conflict  with 
the  customs  or  laws  of  procedure  with  which  they  are  familiar. 


OF    THE    PHILIPPINE    IHLA-NDS,   1900-1903.  9 

It  is  evident  that  the  most  enlightened  thought  of  the  Philippine 
Islands  fully  appreciates  the  importance  of  these  principles  and  rules, 
and  they  will  inevitably  within  a  short  time  command  universal  assent. 
Upon  every  division  and  branch  of  the  government  of  the  Philippines, 
therefore,  must  be  imposed  these  inviolalile  rules: 

That  no  person  shall  be  deprived  of  life,  liberty,  or  property  with- 
out due  process  of  law;  that  private  property  shall  not  be  taken  for 
public  use  without  just  compensation;  that  in  all  criminal  prosecutions 
the  accused  shall  enjoy  the  right  to  a  speedy  and  public  trial,  to  be 
informed  of  the  nature  and  cause  of  the  accusation,  to  be  confronted 
with  the  witnesses  against  him,  to  have  compulsory  process  for  obtain- 
ing witnesses  in  his  favor,  and  to  have  the  assistance  of  counsel  for 
his  defense;  that  excessive  bail  shall  not  be  required,  nor  excessive 
fines  imposed,  nor  cruel  and  unusual  punishment  inflicted;  that  no  per- 
son shall  be  put  twice  in  jeopardy  for  the  same  offense,  or  be  com- 
pelled in  any  criminal  case  to  l)e  a  witness  against  himself;  that  the 
right  to  be  secure  against  unreasonable  searches  and  seizures  shall  not 
be  violated;  that  neithei'  slaver}^  nor  involuntary  servitude  shall  exist 
except  as  a  punishment  for  crime;  that  no  bill  of  attainder,  or  ex-post- 
facto  law  shall  be  passed;  that  no  law  shall  be  passed  abridging  the 
freedom  of  speech  or  of  the  press,  or  the  rights  of  the  people  to 
peaceably  assemble  and  petition  the  Government  for  a  redress  of 
grievances;  that  no  law  shall  l)e  made  respecting  an  establishment  of 
religion,  or  prohibiting  the  free  exercise  thereof,  and  that  the  free 
exercise  and  enjoyment  of  religious  profession  and  w^orship  without 
discrimination  or  preference  shall  forever  be  allowed. 

It  will  be  the  duty  of  the  commission  to  make  a  thorough  investi- 
gation into  the  titles  to  the  large  tracts  of  land  held  or  claimed  by 
individuals  or  l)y  religious  orders;  into  the  justice  of  the  claims  and 
complaints  made  against  such  landholders  by  the  people  of  the  island 
or  any  part  of  the  people,  and  to  seek  by  wise  and  peaceable  measures 
a  just  settlement  of  the  controversies  and  redress  of  wrongs  which 
have  caused  strife  and  bloodshed  in  the  past.  In  the  performance  of 
this  duty  the  comniission  is  enjoined  to  see  that  no  injustice  is  done; 
to  have  regard  for  substantial  rights  and  equity,  disregarding  techni- 
calities so  far  as  substantial  right  permits,  and  to  observe  the  fol- 
lowing rules: 

That  the  provision  of  the  Treaty  of  Paris,  pledging  the  United 
States  to  the  protection  of  all  rights  of  property  in  the  islands,  and  as 
well  the  principle  of  our  own  Government  which  prohibits  the  taking 
of  private  property  without  due  process  of  law,  shall  not  be  violated; 
that  the  welfare  of  the  people  of  the  islands,  which  should  be  a  para- 
mount consideration,  shall  be  attained  consistently  with  this  rule  of 
property  right;  that  if  it  becomes  necessary  for  the  public  interest  of 
the  people  of  the  islands  to  dispose  of  claims  to  property  which  the 


10  REPORTS    OB'   THE    CIVIL    GOVERNMENT 

comniissiou  finds  t*)  ho  not  lawfully  acciuii-cd  and  hold  disposition 
shall  ho  made  thereof  h}'  due  legal  procedure,  in  which  there  shall  be 
full  t)pp()rtunit3-  f<^''  ^'^ii'  <i"<^  impartial  hoarino-  and  judomcnt;  that  if 
the  same  publico  interests  rocpiiro  tho  extinguishniont  of  property 
riohts  lawfully  acquired  and  held  due  compensation  shall  be  made  out 
of  tho  i)u])lic  treasury  therefor,^  that  no  form  of  religion  and  no  min- 
ister of  rolioion  shall  be  forced  upon  an}-  connnunity  or  upon  any 
citizen  of  tho  islands;  that  upon  the  other  hand  no  minister  of  religion 
shall  be  interfered  Avith  or  molested  in  following  his  calling,  and 
that  the  separation  between  state  and  church  shall  be  real,  entire, 
and  absolute. 

^  It  will  be  the  duty  of  the  commission  to  promote  and  extend,  and, 
as  the}'  find  occasion,  to  improve,  the  system  of  education  already 
inaugurated  by  the  military  authorities.  Jn  doing  this  the}^  should 
regard  as  of  first  importance  the  extension  of  a  system  of  primary 
education  which  shall  be  free  to  all,  and  which  shall  tend  to  fit  the 
people  for  the  duties  of  citizenship  and  for  the  ordinar}^  avocations 
of  a  civilized  communit}-.  This  instruction  should  be  given  in  the 
first  instance  in  every  part  of  the  islands  in  the  language  of  the 
people.  In  view  of  tho  great  number  of  lang'uages  spoken  l^y 
the  different  tribes,  it  is  especially  important  to  the  prosperity  of 
the  islands  that  a  common  medium  of  conmiunication  may  be  estab- 
lished, and  it  is  oV)viously  desirable  that  this  medium  should  be  the 
English  language.  Especial  attention  should  be  at  once  given  to 
affording  full  opportunitv  to  all  the  people  of  the  islands  to  acquire 
the  use  of  the  P^nglish  language. 

It  ma}'  be  well  that  the  main  changes  which  should  l)c  made  in  the 
system  of  taxation  and  in  the  body  of  the  laws  under  which  the  people 
are  governed,  except  such  changes  as  have  already  been  made  by  the 
military  government,  should  be  relegated  to  the  civil  government 
which  is  to  be  established  under  the  auspices  of  the  commission.  It 
will,  however,  })e  the  duty  of  the  commission  to  iiupiire  diligently  as  to 
whether  there  are  any  further  changes  which  (Hight  not  be  delayed; 
and  if  so,  they  are  authorized  to  make  such  changes,  subject  to  your 
approval.  In  doing  so  they  are  to  l)ear  in  mind  that  taxes  which  tend 
to  penalize  or  repress  industry  and  enterprise  are  to  be  avoided;  that 
provisions  for  taxation  should  be  simple,  so  that  they  may  l)e  under- 
stood by  the  people;  that  they  should  affect  the  fewest  practicable 
subjects  of  taxation  which  will  serve  for  the  general  distribution  of 
the  burden. 

The  main  body  of  the  laws  which  regulate  the  rights  and  o})ligations 
of  the  people  should  be  maintained  with  as  little  interference  as  pos- 
sible. Changes  made  should  be  mainly  in  procedure,  and  in  the  crim- 
inal laws  to  secure  speedy  and  impartial  trials,  and  at  the  same  time 
effective  administration  and  respect  for  individual  rights. 


OF   THE    PHILIPPINE    ISLANDS,   1900-1903.  11 

In  dealing  with  the  uncivilized  tribes  of  the  islands  the  commission 
should  adopt  the  same  course  followed  b}^  Congress  in  permitting  the 
tribes  of  our  Noi'th  American  Indians  to  maintain  their  tribal  organi- 
zation and  government,  and  under  which  man}-  of  those  tribes  are  now 
living  in  peace  and  contentment,  surrounded  by  a  civilization  to  which 
they  are  unable  or  unwilling  to  conform.  Such  tribal  governments 
should,  however,  be  subjected  to  wise  and  firm  regulation;  and,  with- 
out undue  or  pett}^  interference,  constant  and  active  effort  should  be 
exercised  to  prevent  barbarous  practices  and  introduce  civilized 
customs. 

Upon  all  officers  and  employees  of  the  United  States,  both  civil  and 
military,  should  be  impressed  a  sense  of  the  dut}'  to  observe  not  merely 
the  material  but  the  personal  and  social  rights  of  the  people  of  the 
islands,  and  to  treat  them  with  the  same  courtesy  and  respect  for  their 
personal  dignity  which  the  people  of  the  United  States  are  accus- 
tomed to  require  from  each  other. 

The  articles  of  capitulation  of  the  city  of  Manila  on  the  13th  of 
August,  1898,  concluded  with  these  words: 

"This  city,  its  inhabitants,  its  churches  and  religious  worship,  its 
educational  establishments,  and  its  private  property  of  all  descriptions, 
are  placed  under  the  special  safeguard  of  the  faith  and  honor  of  the 
American  army." 

I  believe  that  this  pledge  has  been  faithfully  kept.  As  high  and 
sacred  an  obligation  rests  upon  the  Government  of  the  United  States 
to  give  protection  for  property  and  life,  civil  and  religious  freedom, 
and  wise,  firm,  and  unselfish  guidance  in  the  paths  of  peace  and  pros- 
perity to  all  the  people  of  the  Philippine  Islands.  I  charge  this  com- 
mission to  labor  for  the  full  performance  of  this  obligation,  which 
concerns  the  honor  and  conscience  of  their  countrv,  in  the  firm  hope 
that  through  their  labors  all  the  inhabitants  of  the  Philippine  Islands 
may  come  to  look  back  with  gratitude  to  the  day  when  God  gave 
victory  to  American  arms  at  Manila  and  set  their  land  under  the  sov- 
ereignty and  the  protection  of  the  people  of  the  United  States. 

WULLIAM  McKlNLEY. 


AN  ACT  FOR  THE  ESTABLISH/nENT  AND  MAINTENANCE  OF  AN  EFFICIENT 
AND  HONEST  CIVIL  SERVICE  IN  THE  PHILIPPINE  ISLANDS. 


By  authority  of  the  President  of  the  United  States,  he  it  enacted  ly 
the  United  States  Phllipxnne  Cornmissum  that — 

Section  1.  The  commission  shall  appoint  three  persons  to  be  mem- 
bers of  a  board  to  be  called  the  Philippine  civil  service  board.  The 
commission  shall  desig^nate  one  of  such  persons  as  chairman  and 
another  as  secretary,  and  may  in  its  discretion  designate  from  among 
the  members  of  the  board  a  chief  examiner. 

Sec.  2.  No  person  shall  be  eligible  for  appointment  as  a  member  of 
the  board  unless  he  shall  be  a  native  of  the  Philippine  Islands  owing 
and  acknowledging  allegiance  to  the  United  States,  or  a  citizen  of  the 
United  States. 

Sec.  3.  Each  '  member  of  the  board  shall  during  his  incumbency 
reside  in  Manila,  and  shall  receive  an  annual  salary  of  three  thousand 
dollars  and  his  necessary  traveling  expenses  while  in  the  discharge  of 
his  official  duties.  In  case  the  commission  shall  designate  a  member 
of  the  board  to  act  as  chief  examiner,  he  shall  receive  in  addition  to 
his  salary  as  a  member  of  the  board  a  further  annual  compensation  of 
five  hundred  dollars. 

Sec.  4.  The  board  shall  prepare  rules  adapted  to  carry  out  the  pur- 
pose of  this  act,  which  is  hereby  declared  to  be  the  establishment  and 
maintenance  of  an  efficient  and  honest  civil  service  in  all  the  executive 
branches  of  the  government  of  the  Philippine  Islands,  central,  depart- 
mental, and  provincial,  and  of  the  city  of  Manila,  by  appointments 
and  promotions  according  to  merit  and  by  competitive  examinations 
where  the  same  are  practicable,  and  it  shall  be  the  duty  of  all  officers 
in  the  Philippine  civil  service,  in  the  departments  and  offices  to  which 
any  such  rules  may  relate,  to  aid,  in  all  proper  ways,  in  carrying  said 
rules,  and  any  modifications  thereof,  into  effect. 

Sec.  5.  This  act  shall  apply,  except  as  hereinafter  expressly  pro- 
vided, to  all  appointments  of  civilians  to  execute  positions  under — 

{a)  The  military  governor. 

\b)  The  United  States  Philippine  Commission. 

(c)  The  treasurer  of  the  islands. 

{d)  The  auditor  for  the  islands. 

{e)  The  collector  of  customs  for  the  islands. 

13 


14  REPORTS    OK    THK    CIVIL    OOVERNMENT 

(/■)  The  collector  of  iiilaiul  n^vcmic  for  the  islands. 

{(/)  Tlie  director  of  posts  for  the  islands. 

{/i)  The  civil  service  board. 

(/)  The  bureau  of  forestry. 

(;)  The  bureau  of  mines. 

(/•)  The  oeneral  superintendent  of  public  instruction. 

(/)  Wardens  of  penitentiaries  and  prisons. 
{m)  The  provost-marshal-general  of  Manila. 

{7i)  The  captain  of  the  port  at  Manila. 

Sec.  6.  The  rules  to  be  adopted  by  the  board  shall  provide: 

(a)  For  the  classification  of  all  offices  and  employments  specified  in 
section  5. 

(h)  For  the  appointment  to  those  offices  requiring  technical,  pro- 
fessional, or  scientific  knowledge  by  competitive  or  noncompetitive 
examinations  or  otherwise,  as  the  board  shall  determine. 

(c)  For  the  selection  of  members  of  the  police  force  and  of  the  fire 
department  in  the  cit}^  of  Manila  and  of  guai'ds  at  prisons  and  peni- 
tentiaries by  competitive  or  noncompetitive  examination,  or  otherwise. 
as  the  board,  after  consultation  with  the  military  governor  and  his 
approval,  shall  determine. 

(d)  For  the  selection  of  laborers,  skilled  and  unskilled,  according  to 
the  priority  of  their  applications,  by  such  noncompetitive  examinations 
as  ma}^  be  practicable,  and  which  need  not,  if  the  board  shall  so  limit 
them,  relate  to  more  than  the  capacit}^  of  the  applicants  to  labor,  their 
habits  of  industry  and  sobriety,  and  their  honesty. 

{e)  For  the  promotion  of  members  of  one  rank  of  the  classified  serv- 
ice to  the  next  higher  rank  by  competitive  examination.  In  the 
competition  the  board  may  provide,  in  its  discretion,  for  the  allowance 
of  credit  to  the  previous  experience  and  efficiency  of  the  applicant  in 
the  civil  service  of  the  islands,  to  be  estimated  by  the  officer  or  officers 
under  whose  direction  the  service  has  been  rendered,  under  such  limi- 
tations as  the  board,  by  general  rule,  may  prescribe:  Provided,  That 
such  credit  shall  not  be  allowed  to  any  applicant  who  shall  not  attain  a 
minimum  average  per  centum  to  l^e  fixed  by  the  lioard. 

{/)  For  a  period  of  probation  before  the  appointment  or  employ- 
ment is  made  permanent. 

{(/)  For  the  preparation  and  holding  at  Manila,  Iloilo,  and  Cebu  of 
open  competitive  examinations  of  a  practical  character  for  testing  the 
fitness  of  applicants  for  appointment  to  the  classified  service,  and  the 
fitness  of  officers  and  employees  for  promotion  therein;  and  for  the 
preparation  and  holding  of  the  same  examinations  in  the  United  States 
under  the  auspices  of  the  United  States  Civil  Service  Commission  for 
original  appointment. 

(A)  For  selection,  according  to  average  percentage,  from  among 
those  certified  by  the  board  as  rated  highest  in  such  competition. 


OP^    THE    PHILIPPINE    ISLANDS,   1900-1903.  15 

(/)  For  transfers  under  limitations  to  be  fixed  by  the  rules  from  one 
branch  of  the  classified  service  to  another,  or  from  the  Federal  classi- 
fied civil  service  of  the  United  States  to  the  classified  service  of  the 
Philippine  Islands. 

(;■)  For  reinstatements  in  the  service  under  limitations  to  be  fixed 
by  the  rules, 

(Z)  For  the  examination  in  the  Spanish  language  of  all  applicants 
who  are  citizens  of  the  United  States  and  in  the  English  language  of 
all  applicants  who  are  natives  of  the  Philippine  Islands,  whenever,  in 
the  opinion  of  the  board,  knowledge  of  both  languages  is  essential  to 
an  eflicient  discharge  of  the  duties  of  the  position  sought. 

(/)  For  the  holding  of  noncompetitive  examinations  when  applicants 
fail  to  compete  after  due  notice  has  been  given  of  an  open  competitive 
examination  to  fill  an  existing  vacancy. 

(m)  For  a  thorough  physical  examination  by  a  competent  physician 
of  every  applicant  for  examination  in  the  United  States  and  for  rejec- 
tion of  every  such  applicant  found  to  be  physically  disqualified  for 
eflicient  service  in  the  Philippine  Islands. 

{?i)  For  a  limitation  upon  the  age  of  those  entering  the  lowest  rank 
of  the  classified  service,  the  maximum  age  under  which  shall  not  be 
greater  than  fortj^  years  and  the  minimum  age  not  less  than  eighteen. 

(o)  For  eliciting  from  all  applicants  for  examination  full  information 
as  to  their  citizenship,  nativit}^,  age,  education,  physical  qualifications, 
and  such  other  information  as  may  reasonably  be  required  affecting 
their  fitness  for  the  service  which  they  seek  to  enter. 

(p)  For  the  employment  of  clerks  and  other  employees  for  temporary 
service  where  it  is  impracticable  to  make  appointments  as  provided  in 
this  act,  for  terms  not  exceeding  ninety  days,  but  no  person  shall  be 
employed  under  this  exception  for  more  than  ninety  days  in  a  year. 

(q)  The  enumeration  herein  of  the  subjects  to  be  covered  by  the  rules 
of  the  board  shall  not  be  regarded  as  exclusive,  but  the  board  shall 
have  power  to  adopt  any  rule,  not  in  violation  of  the  limitations  of 
the  act  which  will  more  eiBciently  secure  the  enforcement  of  the  act. 

Sec,  7.  The  board  shall  keep  minutes  of  its  own  proceedings,  and 
on  or  })efore  the  first  day  of  Jaiuiaiy  of  each  year  shall  make  an  annual 
report  to  the  militar}'  governor  and  to  the  commission  showing  its 
proceedings,  the  rules  which  it  has  adopted,  the  practical  effect  thereof, 
and  suggestions  for  carrying  out  more  effectually  the  purpose  of 
this  act. 

Se(;.  8.  The  board  shall  supervise  the  preparation  and  rating  and 
have  control  of  all  examinations  in  the  Philippine  Islands  under  this 
act.  The  board  may  designate  a  suital)le  num])er  of  persons  in  the 
Philippine  (;ivil  service  to  conduct  its  examinations  and  to  serve  as 
members  of  examining  conmiittees,  and  when  examiners  with  special, 
technical,  or  professional  qualifications  are  required  for  the  prepara- 


16  REPORTS    OK    THE    OIVIL    OOVERNMENT 

tion  or  rating  of  extunination  papers  it  ma}'  designate  competent  per- 
sons in  the  service  for  such  special  dut}',  after  consultation  with  the 
proper  officer  or  officers  under  whom  they  are  serv^ing.  The  duties 
required  of  such  persons  as  members  of  examining  connuittees,  or  as 
special  examiners,  shall  ))e  considered  as  part  of  their  official  duties 
and  shall  be  performed  without  extra  compensation.  When  persons 
can  not  be  found  in  the  Philippine  service  with  the  necessary  qualifi- 
cations for  special  examining  work  that  may  be  required,  the  board  is 
authorized  to  employ  at  a  reasonable  compensation  persons  not  in 
public  employment  for  such  work,  which  compensation  shall  be  paid 
out  of  the  general  funds  appropriated  for  the  purposes  of  the  board 
on  its  order. 

Sec.  9.  The  board  ma}^  make  investigations  and  report  upon  all 
matters  relating  to  the  enforcement  of  this  act  and  the  rules  adopted 
hereunder,  and  in  making  such  investigations  the  board  and  its  duly 
authorized  examiners  are  empowered  to  administer  oaths,  to  summon 
witnesses,  and  to  require  the  production  of  official  books  and  records 
which  may  be  relevant  to  such  investigation. 

Sec.  10.  The  board,  shall  have  a  permanent  office  in  the  citj^  of 
Manila.  When  examinations  are  to  be  held  b}^  the  board,  either  in 
Manila,  Iloilo,  or  Cebu,  officers  having  the  custody  of  public  build- 
ings shall  allow  their  reasonable  use  for  the  purpose  of  holding  such 
examinations. 

Sec.  11.  The  head  of  each  office  to  which  this  act  applies  shall 
notify  the  board  in  writing  without  delay  of  all  appointments,  perma- 
nent, temporary,  or  probationals  made  in  the  classified  service  in  his 
office,  of  all  rejections  after  the  period  of  probation,  and  of  all  trans- 
fers, promotions,  reductions,  resignations,  or  vacancies  from  any  cause 
in  said  service,  and  of  the  date  thereof;  and  a  record  of  the  same  shall 
be  kept  b}'  the  board. 

Sec,  12.  When  the  board  shall  find  that  any  person  is  holding  a 
position  in  the  civil  service  in  violation  of  the  provisions  of  this  act  or 
the  rules  of  the  })oard,  it  shall  certify  information  of  the  fact  to  the 
disbursing  and  auditing  officers  through  whom  the  payment  of  the  sal- 
ary or  wages  of  such  position  is  by  law  required  to  be  made,  and  if 
thereafter  the  disbursing  or  auditing  officer  shall  pa}^,  or  permit  to  be 
paid,  to  the  person  such  salary  or  wages,  the  payment  shall  be  illegal, 
the  disbursing  officer  shall  not  receive  credit  for  the  same,  and  the 
auditing  officer  who  authorizes  the  payment  shall  be  liable  on  his  official 
bond  for  the  loss  resulting  to  the  proper  government. 

Sec.  13.  Anj^  person  in  the  Philippine  civil  service  who  shall  wilfully 
or  corruptly,  by  himself  or  in  cooperation  with  one  or  more  persons, 
defeat,  deceive,  or  obstruct  any  person  in  the  matter  of  his  right  of 
examination  by  said  board,  or  who  shall  wilfully,  corruptly,  and  falsely 
rate,  grade,  estimate,  or  report  upon  the  examination  or  standing  of 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  17 

an}'  person  examined  hereunder,  or  who  shall  wilfully  and  corruptly 
make  an}'  false  representations  relative  thereto,  or  who  shall  wilfuU}'^ 
and  corruptl}'  furnish  any  special  or  secret  information  for  the  purpose 
of  improving  or  injuring-  the  prospects  or  chances  of  any  person  so 
examined,  or  to  be  examined,  employed,  appointed,  or  promoted  shall, 
for  each  offeuse,  be  punished  b}'  a  line  not  exceeding  t>l,000,  or  by 
imprisonment  for  a  period  not  exceeding  one  year,  or  by  both  such 
fine  and  imprisonment. 

Sec.  14.  Any  person  who  shall  willfully  and  corruptly  become  the 
beneficiar}'  of  an  act  in  violation  of  the  last  preceding  section  shall  be 
punished  as  provided  in  that  section. 

Sec.  15.  No  inquiry  shall  be  made,  and  no  consideration  whatever 
shall  be  given  to  anj^  information,  relative  to  the  political  or  religious 
opinions  or  affiliations  of  persons  examined,  or  to  be  examined,  for 
entrance  into  the  service,  or  of  officers  or  employees  in  the  matter  of 
promotion:  Provided,  however,  that  disloyalty  to  the  United  States 
of  America  as  the  supreme  authority  in  these  islands  shall  be  a  com- 
plete disqualification  for  holding  office  in  the  Philipf)ine  civil  service. 

Sec.  16.  Ever}'  applicant  for  admission  to  the  Philippine  civil  serv- 
ice shall,  before  being  admitted  to  examination  in  the  islands,  take 
and  subscribe  the  following  oath  before  a  ]  ustice  of  the  peace  in  and 
for  the  province  in  which  he  is,  or  before  a  member  of  the  civil-service 
board,  the  members  of  which  are  authorized  to  administer  the  same: 

OATH    OF   applicant. 

I, ,  having  applied  for  admission  to  the  civil  service 

of  the  Philippine  Islands,  do  solemnly  swear  (or  afiirm)  that  I  recog- 
nize and  accept  the  supreme  authority  of  the  United  States  of  America 
in  these  islands,  and  will  maintain  true  faith  and  allegiance  thereto; 
that  I  will  obey  the  laws,  legal  orders,  and  decrees  promulgated  by 
its  duly  constituted  authorities;  that  I  impose  upon  myself  this  obli- 
gation voluntarily,  without  mental  reservation  or  purpose  of  evasion. 
So  help  me  God.  (The  last  four  words  to  be  stricken  out  in  case  of 
affirmation.) 

(Signature)  • 

Subscribed  and  sworn  to  (or  affirmed)  before  me  this day  of 

,  19—. 


The  oath  of  the  applicant  shall  be  filed  with  the  secretary  of  the 
board. 

Sec.  17.  No  officer  or  employee  in  the  Philippine  civil  service  shall, 
directly  or  indirectly,  give  or  hand  over  to  any  other  officer  or 
employee  in  said  service  any  money  or  other  valuable  thing  to  be 
applied  to  the  promotion  of  any  political  object  whatever,  and  a  viola- 
tion of  this  section  by  the  giving  or  receiving  officer  or  employee  shall 
23181—04 2 


18  REPORTS    OF   THE    CIVIL    GOVERNMENT 

subject  the  violator  to  a  ponaltv  of  not  exceeding  $500,  or  to  imprison- 
ment not  exceeding  six  months,  or  both,  and  upon  conviction  he  sliall 
be  removed  from  office. 

Sec.  18.  No  person  in  the  Philippine  civil  service  shall  be  under 
obligation  to  contribute  to  a  political  fund  or  to  render  a  political 
service,  or  be  removed  or  otherwise  prejudiced  for  refusing  to  do  so. 
Any  person  soliciting  political  contributions  from  public  officers  or 
employees  shall  be  subject  to  the  same  penalties  as  those  provided  in 
the  preceding  section. 

Sec.  19.  In  the  appointment  of  officers  and  employees  under  the 
provisions  of  this  act,  the  appointing  officer,  in  his  selection  from  the 
list  of  eligibles  to  be  furnished  him  by  the  board,  shall,  where  other 
qualitications  are  equal,  prefer — 

First.  Natives  of  the  Philippine  Islands. 

Second.  All  honorably  discharged  soldiers,  sailors,  and  marines  of 
the  United  States. 

Sec.  20.  The  requirements  of  this  act  for  entrance  into  the  civil 
service,  or  for  promotion  by  competitive  examination,  shall  not  apply 
to  the  selection  of  the  treasurer  for  the  islands;  the  auditor  for  the 
islands;  the  collector  of  customs  for  the  islands;  the  deput}^  collector  of 
customs  for  the  islands;  the  collector  of  inland  revenue  for  the  islands; 
the  director  of  posts  for  the  islands;  the  head  of  the  bureau  of  forestr}-; 
the  head  of  the  bureau  of  mines;  the  superintendent  of  public  instruc- 
tion; the  members  of  the  civil-service  board,  or  of  one  private  secretary 
for  the  military  governor  and  for  each  member  of  the  United  States 
Phillippine  Commission.  But,  after  eighteen  months  from  the  date 
when  the  board  shall  certify  that  it  has  a  sufficient  list  of  eligibles  to 
supply  vacancies,  vacancies  occurring  in  all  the  foregoing  offices,  except 
in  the  private  secretaryships  above  described,  shall  be  filled  without 
examination  from  a  class  to  be  composed  of  the  first,  second,  and  third 
assistants  in  all  the  foregoing  offices,  the  intention  of  this  provision 
being  that  the  appointing  power  may,  b}^  virtue  hereof,  transfer  from 
one  office  to  another  a  person  deemed  competent  to  fill  the  vacancy. 

Sec.  21.  The  requirements  of  this  act  for  entrance  or  promotion  by 
competitive  examination  shall  not  appl}^  to  the  office  of  cashier  of  the 
collector  of  customs  for  the  islands,  to  the  captain  of  the  port  at 
Manila,  to  the  collector  of  customs  at  Iloilo,  and  to  the  collector  of 
customs  at  Cebu,  until  one  year  after  the  date  when  the  board  shall 
make  the  certificate  prescribed  in  the  preceding  section,  after  which 
vacancies  in  such  offices  shall  be  filled  b}^  promotion  b}^  competitive 
examination  as  in  other  cases. 

Sec.  22.  The  persons  now  employed  in  the  civil  service  of  the 
Philippine  Islands  whose  positions  may  be  classified  by  the  operation 
of  this  act  and  the  rules  herein  provided  for  shall,  unless  dismissed  by 
proper  authority,  continue  in  the  service  and  discharge  the  duties 


OF   THE    PHILIPPINE    ISLANDS,   1900-1903.  19 

assigned  them:  Provided,  That  the  board  may,  in  its  discretion,  require 
b}'  rule  that  all  such  employees  shall  pass  examinations  practically 
adapted  to  show  their  titness  to  fill  the  positions  now  held  by  them, 
and  that  in  case  of  failure  to  pass  such  examinations  to  the  satisfaction 
of  the  board  they  shall  be  dismissed  from  the  service. 

Sec.  23.  This  act  shall  not  apply  to  the  selection  of  school-teachers 
of  the  department  of  public  instruction,  for  which  special  legislation 
will  be  provided. 

Sec.  24.  The  rules  to  be  prepared  and  certified  by  the  board  shall 
be  promulgated  by  executive  order  of  the  military  governor. 

Sec.  25.  After  the  passage  of  this  act  no  civilian  shall  be  employed 
in  the  offices  specified  in  section  5  of  this  act,  except  in  accordance 
with  its  terms:  Provided,  that  between  the  time  of  its  passage  and  the 
date  when  the  board  herein  created  shall  officially  inform  the  military 
governor  and  the  commission  that  it  is  ready  to  certify  a  list  of  per- 
sons eligible  to  appointment  under  the  provisions  of  this  act  for  any 
vacancy  occurring,  appointments  for  temporary  service  may  be  made 
to  fill  vacancies  or  newl}^  created  offices  to  continue  until  such  certifi- 
cation is  made  and  such  vacancies  can  be  regularly  filled,  under  the 
requirements  of  this  act  and  the  rules  of  the  board  adopted  in  accord- 
ance herewith.  Persons  so  temporarily  appointed  may  compete  in 
the  examinations  held  for  regular  entrance  to  the  classified  service. 

Sec.  26.  In  this  act  whenever  a  sum  of  money  is  mentioned  it  shall 
be  understood  to  refer  to  the  money  of  the  United  States. 

Sec.  27.  Upon  the  passage  of  this  act  and  the  appointment  and 
organization  of  the  board  it  shall  be  the  duty  of  the  head  of  each  office 
to  which  this  act  applies  upon  application  by  the  board  to  certify  to 
the  board  a  complete  list  of  all  the  officers  and  employees  engaged 
therein,  together  with  a  full  statement  of  the  duties  performed  by 
them  and  the  compensation  received  by  them. 

Sec.  28.  No  person  shall  be  admitted  to  the  competitive  examina- 
tions to  be  held  under  this  act  who  are  not  either — 

(a)  Citizens  of  the  United  States,  or 

(h)  Natives  of  the  Philippine  Islands,  or 

(f)  Persons  who  have,  under  and  by  virtue  of  the  treaty  of  Paris, 
acquired  the  political  rights  of  natives  of  the  islands. 

Sec.  29.  This  act  shall  take  effect  on  its  passage  and  shall  be  referred 

to  as  the  "Civil-service  act." 

Enacted  September  19,  1900. 

Wm.  H.  Taft,  President . 


REPORTS 


TAFT  PHILIPPINE   COMMISSION 


MESSAGE  FROM  THE  PRESIDENT  OF  THE  UNITED 
STATES,  TRANSMITTING  A  REPORT  OF  THE  SECRE- 
TARY OF  WAR,  CONTAINING  THE  REPORTS  OF  THE 
TAFT  COMMISSION,  AND  OTHER  IMPORTANT  IN- 
FORMATION RELATING  TO  THE  CONDITIONS  AND 
IMMEDIATE   WANTS    OF    THE   PHILIPPINE   ISLANDS 


21 


To  the  Spnafp  avd  Hou^p  of  Tteprps^et-ttatwes: 

For  the  information  of  the  Congress,  and  with  a  view  to  such  action 
on  its  part  as  it  may  deem  wise  and  appropriate,  I  transmit  a  report 
of  the  Secretary  of  War  made  to  me  under  date  of  January  24,  1901, 
containing  the  reports  of  the  Taft  Commission,  its  several  acts  of  leg- 
islation, and  other  important  information  relating  to  the  conditions 
and  immediate  wants  of  the  Philippine  Islands. 

I  earnestly  recommend  legislation  under  which  the  government  of 
the  islands  may  have  authority  to  assist  in  their  peaceful  industrial 
development  in  the  directions  indicated  by  the  Secretary  of  War. 

William  McKinlf.y. 

Executive  Mansion, 

January  ^5,  1901. 

23 


REPORT. 

January  24,  1901. 
To  the  President: 

I  beg  leave  to  supplement  my  annual  report  of  November  30,  1900, 
by  transmitting  a  report  made  by  the  Philippine  Commission  on  that 
date,  but  only  recently  received  at  the  War  Department.  At  the  same 
time  I  wish  to  call  attention  to  some  conditions  existing  in  the  Philip- 
pine Islands  which  indicate  that  the  development  of  that  country  along 
the  lines  of  peaceful  industrial  progress  now  requires  the  exercise  of 
powers  of  civil  government  not  vested  in  this  Department,  or  in  you 
as  military  commander,  but  requiring  a  grant  of  authority  from  the 
Congress. 

1.  The  Commission  gives  a  gratifying  account  of  the  progress  made 
in  the  pacification  of  the  country  and  the  gradual  subsidence  of  guer- 
rilla warfare.  Information  received  subsequent  to  the  date  of  the 
report  confirms  the  favorable  anticipations  of  the  Commission.  A 
personal  letter  received  by  me  from  Judge  Taft,  dated  December  14, 
1900,  says: 

Since  writing  you,  about  3,000  insurgents  in  Ilocos  Norte  have  surrendered,  and 
10,000  persons  who  were  not  well  affected  toward  us  in  Panay  have  taken  the  oath 
of  allegiance.  I  have  received  two  papers  from  native  priests,  18  in  number,  and 
I  am  told  that  there  will  be  a  great  many  other  papers  signed  by  a  great  many  more 
native  priests,  tendering  their  allegiance  to  the  United  States,  and  promising  fidelity 
without  mental  reserve.  The  native  priests  are  those  who  have  held  out  longest  in 
favor  of  the  insurgents  and  against  the  Americans,  and  I  deem  this  action  as  of  great 
importance.  The  army  is  hitting  small  but  hard  knocks  against  the  insurgents 
everywhere.  Since  the  election  there  has  been  a  great  falling  off  in  the  activity  of 
the  insurgents  in  aggressiveness  and  their  sole  activity  has  been  displayed  in  avoid- 
ing the  fights  which  small  detachments  of  our  troops  have  brought  about. 

On  the  2d  of  January  the  Commission  as  a  body  reenforced  the  views 
contained  in  their  report  by  the  following  dispatch  from  Manila: 

Root,  Secretary  of  War,  WasJiington: 

If  you  approve,  ask  transmission  to  proper  Senators  and  Representatives  of  follow- 
ing: Passage  of  Spooner  bill  at  present  session  greatly  needed  to  secure  best  result 
from  improving  conditions.  Until  its  passage  no  purely  central  civil  government 
can  be  established,  no  public  franchises  of  any  kind  granted,  and  no  substantial 
investment  of  private  capital  in  internal  improvements  possible.  All  are  needed  as 
most  important  step  in  complete  pacification.  Strong  peace  party  organized  with 
defined  purpose  of  securing  civil  goveriinieiit  under  United  States  and  reasonably 
expect  civil  government  and  relief  for  inevitable  but  annoying  restraints  of  military 

25 


2<>  REPORTS    OK    THK    CIVIL    (SOVERNMENT 

rule  lonjr  before  pubject  can  l)e  taken  np  by  \w\\  Conf2;ress.  Time  near  at.  hand  in 
our  opinion  when  distnrbances  existing  can  better  be  snpi)re8S('(l  by  native  police  of 
a  civil  government  with  army  as  anxiliary  force  than  by  continuance  of  complete 
military  control.  Power  to  make  change  should  be  put  in  hands  of  President  to  act 
promptly  when  time  arrives  to  give  Filipino  people  an  object  lesson  in  advantages  of 
peace.  Quasi  civil  government  under  way — power  most  restricted  and  unsatisfying. 
Commission  embarrassed  in  securing  good  material  for  judicial  and  other  service  by 
necessarily  provisional  character  of  military  government  and  uncertainty  of  tenure. 
Sale  of  public  lands  and  allowance  of  mining  claims  impossible  until  Spooner  bill. 
Hundreds  of  American  miners  on  ground  awaiting  law  to  perfect  claims.  More  com- 
ing. Good  element  in  pacification.  Urgently  recommend  amendment  Spooner  bill 
so  that  its  operation  be  not  postponed  until  complete  suppression  of  all  insurrection, 
but  only  until  in  President's  judgment  civil  government  may  be  safely  established. 
Conditions  rapidly  improving  to  point  where  civil  government  with  aid  of  army  will 
be  more  efficient  to  secure  peace  than  military  control. 

COMMISSION. 

A  dispatch  from  Judge  Taft,  dated  January  9,  1901,  says: 

Conditions  rapidly  improving.  Rifles,  officers,  privates  are  being  captured  or  sur- 
rendered daily  in  consideralile  numbers  in  north  and  south  Luzon.  Same  conditions 
in  Panay,  where  more  than  ;]5,000  have  taken  oath  of  allegiance.  Insurgent  forces 
completely  scattered  and  leader,  Delgado,  negotiating  for  surrender.  Work  in  Samar 
slower,  because  of  Lucban's  long  uncontested  occupation  of  interior  and  swollen 
streams  early  in  campaign.  Campaign  in  Samar  has  driven  bands  into  Leyte,  pro- 
ducing disturbance,  but  information  is  that  condition  there  favorable.  Federal  party 
for  peace;  direct  result  of  election.  Well  organized  and  rapidly  increasing  in  Manila, 
preparing  to  extend  organization  to  many  provinces  on  pressing  and  numerous  invita- 
tions from  leading  citizens. 

The  .report  shows  that  the  islands  are  estimated  to  contain  about 
73,000,000  acres  of  land,  of  which  less  than  5,000,000  are  held  in  pri- 
vate ownership,  leaving  in  public  lands  over  68,000,000  acres;  that 
this  land  is  for  the  most  part  exceedingly  fertile,  well  watered,  adapted 
to  the  raising  of  a  great  variety  of  useful  crops,  much  of  it  covered 
by  the  most  valuable  timber,  with  extensive  deposits  of  gold,  of  cop- 
per, of  high-grade  iron,  and  of  excellent  coal;  that  more  than  a  thou- 
sand mining  prospectors,  chiefly  American,  are  already  scattered 
throughout  the  islands  waiting  for  the  enactment  of  sonie  law  under 
which  they  may  acquire  rights  to  mining  claims  covering  their  dis- 
coveries of  mineral;  that  the  public  lands  have  never  been  surveyed, 
and  no  facilities  have  been  afl'orded  for  the  Filipinos  to  acquire  title, 
and  that  from  two  to  four  hundred  thousand  of  the  natives  are  now 
living  as  squatters  on  these  lands  waiting  for  some  homestead  or  set- 
tlers' law  under  which  they  may  become  owners  of  the  land  they  till, 
or  still  other  lands;  that  capital  is  waiting  ready  to  inaugurate  the 
enterprises  which  shall  develop  this  vast  natural  wealth,  but  there  is 
no  authority  under  which  railroads  or  other  means  of  communication 
can  be  constructed  to  get  the  products  of  the  land  to  the  market;  that 
the  building  of  55  miles  of  railroad  already  surveyed  would  throw  open 
to  the  inhabitantsj  of  the  islands  as  an  unsurpassed  health  resort  the 


OF    THE    PHILIPPINE    INLANDS,    1900-1903.  27 

high  table-land  of  Benguet  in  northern  Luzon,  free  from  tropical 
vegetation,  with  forests  of  pine,  and  with  the  cool  and  invigorating 
climate  of  the  northern  temperate  zone;  but  there  is  no  law  under 
which  the  railroad  can  be  built;  that  under  all  its  disadvantages  busi- 
ness has  increased  and  the  customs  receipts  are  more  than  double  the 
amount  collected  by  the  Spanish  Government  from  the  same  source, 
but  that  business  is  hampered  and  endangered  by  the  scarcity  of  cur- 
rency, and  there  is  no  law  under  which  currency  can  be  supplied  from 
either  public  or  private  source.  The  army  has  brought  the  Philip- 
pines to  the  point  where  they  offer  a  ready  and  attractive  field  for 
investment  and  enterprise,  but  to  make  this  possible  there  must  be 
mining  laws,  homestead  and  land  laws,  general  transportation  laws, 
and  banking  and  currency  laws. 

Such  laws  the  military  government  can  not  supply.  Broad  and 
peremptory  as  are  its  powers  for  the  time,  it  is  temporary  in  its  char- 
acter, and  can  not  project  its  authority  into  the  future.  It  can  not 
give  title  to  the  settler  or  the  miner,  or  corporate  rights  to  the  bank 
or  the  railroad. 

The  great  agency  to  bring  industrial  activity  and  awakened  enter- 
prise and  prosperity  and  contentment  to  the  country  of  the  Philippines 
must  be,  not  a  military  government,  Init  the  same  kind  of  individual 
enterprise  which  has  built  up  our  own  country.  With  increased 
activity  of  individual  enterprise  and  business  will  come  the  greater 
revenues  necessary  for  the  performance  of  the  proper  duties  of  civil 
government,  for  harbor  improvements  and  paved  and  sewered  streets 
and  passable  highways  and  adequate  schools  and  effective  police.  It 
is  to  the  exhibition  of  such  manifest  results  of  good  government  that 
we  must  look  as  the  chief  means  of  convincing  the  people  of  the  Phil- 
ippine Islands  that  our  professions  of  interest  in  their  welfare  are 
sincere. 

2.  The  section  of  the  report  on  the  liquor  traffic  in  Manila  indicates 
that  the  powers  of  the  Commission  are  ample  to  deal  with  that  sub- 
ject; that  they  have  devoted  great  attention  to  it,  and  that  the  diffi- 
culties which  they  experience  are  the  same  as  those  which  confront 
Congress  in  governing  the  city  of  Washington  and  our  State  legisla- 
tures in  dealing  with  the  same  subject,  while  the  success  which  they 
have  attained  will  compare  favorably  with  the  results  here.  Many 
false  and  misleading  statements  have  been  made  regarding  the  use  of 
intoxicating  liquors  in  Manila.  The  fact  is  that  this  traffic  is  more 
rigidly  and  effectively  regulated  and  kept  within  bounds  in  the  city  of 
Manila  than  in  any  (;ity  of  similar  or  greater  size  in  the  United  States. 
A  strict  high-license  law  is  enforced,  under  which  the  native  saloons 
or  wine  shops  have  been  reduced  from  4,000  at  the  time  of  American 
occupation  to  400  at  the  present  time,  and  the  saloons  selling  American 
liquoi-s,  including  hotels  and  restaurants,  have  been  reduced  from  224 
in  February,  1900,  to  105  at  the  date  of  this  report  and  to  88  at  the 


28 


REPORTS    OF    THE    CIVIL    GOVERNMENT 


present  time.  Of  these,  but  48  are  permitted  to  sell  spirituous  liquors. 
All  of  these  saloons  are  closed  at  half  past  8  in  the  evening,  and  are 
prevented  from  makino-  sales  until  the  following  day,  and  all  are 
closed  and  prevented  from  soiling  on  Sundays. 

Manila  has  a  population  of  over  400,000,  and  as  against  her  400 
native  and  88  foreign  saloons  for  that  population  we  have  in  this 
country  the  cities  of — 


Popula- 
tion. 


Saloon 


Washington.. 

Cleveland 

Cincinnati ... 
New  Orleans. 
Milwaukee... 
San  Francisco 

St.  Louis 

Baltimore 

Boston 

Philadelphia. 

Chicago 

New  York 


278, 718 
381, 768 
325,902 
287, 104 
285,  ;16 
342,782 
575, 238 
608, 957 
660, 892 
293,697 
698, 576 
437, 202 


513 
1,888 
1,727 
1,370 
1,747 
3,007 
2,060 
1,988 

799 

1,709 

6,460 

10, 832 


Since  the  date  of  the  Commission's  report  further  regulations  have 
been  adopted  by  them,  limiting  the  portions  of  the  city  in  which  the 
traffic  is  permitted,  and  I  am  satisfied  that  they  are  dealing  with  the 
subject  with  wisdom,  firmness,  and  a  full  knowledge  of  the  conditions. 
In  order  to  bring  our  information  down  to  the  present  time,  I  have 
recently  cabled  inquiries  to  the  president  of  the  commission  and  the 
military  governor,  which,  together  with  their  answers,  are  appended 
hereto. 

3.  Acting  upon  that  clause  of  5^our  instructions  which  vests  in  the 
Philippine  Commission  authority  to  exercise,  subject  to  your  approval 
through  the  War  Department,  that  part  of  your  military  authority 
which  is  legislative  in  its  character,  the  Commission  has  adopted 
regular  methods  of  legislative  procedure,  and  regulations  of  a  general 
civil  character  instead  of  being  in  the  form  of  military  orders  now 
receive  a  form  corresponding  to  their  true  character,  of  legislative 
enactments.  The  Commission  transmit  with  their  report  the  regula- 
tions, 47  in  number,  which  they  had  adopted  prior  to  the  12th  of 
November,  and  to  those  1  add  from  the  files  of  the  War  Department 
8  additional  enactments,  numbered  48  to  65,  inclusive,  received  by  the 
mail  following  the  report.  I  venture  to  express  the  hope  that  an 
examination  of  these  acts,  as  well  as  the  reading  of  the  report,  will 
carry  to  your  mind,  as  it  has  to  mine,  the  conviction  that  the  commis- 
sion are  proceeding  in  accordance  with  the  high  spirit  of  your  instruc- 
tions, and  with  zeal  and  discretion  are  pressing  forward  with  all  prac- 
ticable speed  the  establishment  of  civil  government  in  conformity  to 
American  institutions,  and  in  fulfillment  of  our  duty  to  the  people  of 
the  Philippine  Islands. 

Very  respectfully,  Elihu  Root, 

Secretcm/  of  Wa/r, 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  29 

[War  Department  cablegram.] 

January  15,  1901. 
Taft,  Manila: 

Cable  answer  following  questions:  What  is  present  condition  Manila  as  to  use  of 
intoxicating  liquors,  drunkenness,  and  disorder?  How  does  it  compare  with  princi- 
pal American  cities?  Do  natives  frequent  American  saloons,  or  drink  American 
liquors?  How  much  drunkenness  among  American  soldiers?  Are  houses  of  prosti- 
tution licensed,  protected,  or  in  any  way  encouraged  by  authorities? 

Root,  Secretary  War. 


[Cablegram  received  in  cipher.] 

Manila,  Jantmry  17,  1901. 
Root,  Secretary  of  War,  Washington,  D.  C: 

With  reference  to  your  telegram  of  the  15th:  First.  Very  good.  Second.  Better 
than  any  American  city  of  same  size.  Third.  Practically  not  at  all.  Fourth.  Con- 
siderable. Much  more  conspicuous  than  at  home,  because  several  barracks  near 
heart  of  city  and  frequented  saloons  on  narrow  thoroughfares.  New  license  law 
passed  to  obstruction  to  travel  by  banishing  saloons  to  places  less  accessible  and 
annoying  to  general  public.  Informed  by  Army  authorities  that  actual  drunkenness 
not  much,  if  any,  greater  than  at  home.  Absence  of  home  influence  and  lack  of  usual 
amusements  would  naturally  increase  it.  Marked  improvement  in  this  regard  smce 
improved  political  condition  in  city  has  permitted  more  attention  to  the  subject. 

Fifth.  No;  but  true  that  in  November,  1898,  spread  of  venereal  diseases  among 
soldiers  led  military  authorities,  in  order  to  maintain  effectiveness  of  army,  to  sub- 
ject known  prostitutes  to  certified  examination  and  confinement  of  diseased  in 
special  hospital,  expense  of  which  paid  from  fund  in  custody  of  army  officer  derived 
solely  from  fees  charged  for  examination,  of  50  cents  to  $2,  according  to  place  of 
examination.  System  has  greatly  reduced  percentage  of  disability  from  this  cause. 
Purely  army  police  measure,  outside  our  jurisdiction;  military  necessity.  Result 
Ijetter  than  futile  attempt  at  total  suppression  in  Oriental  city  of  300,000,  producing 
greater  evil.  Prostitutes  known  not  permitted  to  land.  Number  deported.  General 
moral  condition  of  city  greatly  maligned.  Crimes  of  violence  now  comparatively 
few.  Gambling  greatly  decreased.  Native  vino  shops  in  Manila  in  August,  1898, 
4,000;  now  reduced  to  400.  American  saloons,  including  hotels  and  restaurants, 
reduced  from  224  in  February,  1900,  to  88,  now;  of  these  only  48  licensed  to  sell 
spirituous  liquors. 

Commission. 


[Cablegram.] 

Adjutant-General's  Office, 

Washington,  Janvury  16,  1901. 
MacArthur,  Manila: 

Telegraph  the  condition  of  army,  Manila  and  elsewhere  Philippine  Islands,  with 
reference  to  drunkenness  and  use  intoxicating  liquors.  Are  houses  prostitution 
licensed,  protected,  or  in  any  way  encouraged  by  military  authorities? 

CORBIN. 


Manila.     (Received  January  17,  1901 — 12.15  a.  m.) 
Adjutant-General,  Washington: 

With  reference  to  your  telegram  of  16th,  dnmkenness  this  army  no  more  noticeable 
here  than  in  garrisons  United  States.  Considering  whole  force  as  unit,  probably  very 
much  less.  In  Manila  drunken  men  very  noticeable;  effe<;t  one  drunkard  in  public 
place  creates  impression  among  citizens  of  extensive  disorders  throughout  whole 
force,  which  is  not  case.  Army  in  splendid  discipline,  high  state  efficiency,  doing 
hardest  kind  service,  most  faithful  inspiring  manner.  Houses  prostitution  not 
licensed,  protected,  encouraged. 

MacAbthub. 


REPORT  OF  THE  UNITED  STATES 
PHILIPPINE  COMMISSION. 


Manila,  Navemher  30, 1900. 
The  Secretary  of  War, 

Washmgtoji,  D.  C. 

Sir:  The  United  States  Philippine  Commission  begs  to  submit  its 
report,  as  follows: 

The  Coumiission  arrived  in  Manila  on  June  3  last,  was  courteously 
received  by  Maj.  Gen.  Arthur  Mac  Arthur,  the  military  governor,  and 
after  about  a  month  was  furnished  with  comfortable  offices  in  the 
Ayuntamiento.  Upon  its  arrival  an  informal  statement  of  the  pur- 
poses of  the  Commission  was  issued,  a  copy  of  which  is  appended  and 
marked  ''Exhibit  A."  Under  the  instructions  of  the  President,  the 
commission  was  not  to  perform  any  official  function  in  the  military  gov- 
ernment until  the  1st  of  September  following,  but  was  to  occupy  itself 
solely  with  the  duty  of  investigating  conditions.  Subjects  were 
assigned  to  the  commissioners,  as  follows: 

Taft:  The  civil  service,  the  friars,  and  public  lands. 

Worcester:  Municipal  corporations,  forestry,  agriculture,  mining, 
and  public  health. 

Wright:  Internal  improvements,  franchises,  militia,  and  police  and 
criminal  code. 

Ide:  Code  of  civil  procedure,  courts,  banks  and  currency,  and  regis- 
tration laws. 

Moses:  Schools  and  taxation. 

Taft,  Wright,  and  Ide:  Civil  code. 

The  Commission:  Central,  department,  and  provincial  governments. 

Each  commissioner  was  expected  to  conduct  investigations  and  exam- 
inations on  the  subjects  assigned  to  him.  Much  formal  evidence  was 
taken  and  transcribed,  1)ut  more  was  gathered  from  informal  conversa- 
tions when  no  stenographer  was  present. 

Many  witnesses  were  examined  as  to  the  form  of  government  best 
adapted  to  these  islands  and  satisfactory  to  the  people.  All  the  evi- 
dence taken,  no  matter  what  the  bias  of  the  witness,  showed  that  the 
masses  of  the  people  are  ignorant,  credulous,  and  childlike,  and  that 
under  any  government  the  electoral  franchise  must  be  much  limited, 
because  the  large  majoi'ity  will  not,  for  a  long  time,  be  capable  of 
intelligently  exercising  it. 


31 


32  REPORTS    OF    THE    CIVIL    GOVERNMENT 

In  July  the  military  governor  was  requested,  bj'  petition  of  the 
rector  of  the  University  of  St.  Thomas,  to  allow  the  College  of  San 
Jos6  to  be  opened  to  receive  medical  students  as  a  part  of  the  uni- 
versity. The  college  had  been  closed  by  General  Otis,  when  military 
governor,  on  the  ground  that  it  was  the  property  of  the  Government 
of  the  United  States,  acquired  by  the  treaty  of  Paris  from  Spain,  and 
held  for  the  benefit  of  the  people  of  the  Philippine  Islands  for  educa- 
tional purposes.  The  petition  for  reopening  the  college  was  vigor- 
ously resisted  by  a  delegation  of  prominent  citizens  of  Manila.  At  a 
conference  between  the  military  governor  and  the  Commission  it  was 
agreed  that  his  action  should  await  the  result  of  a  hearing  to  be  had 
before  the  commission  to  enable  it  to  determine  whether  the  claim 
made  on  behalf  of  the  Philippine  people  was  of  sufficient  substance  to 
justify  the  Commission,  when  it  should  assume  legislative  power,  in 
enacting  a  law  providing  for  the  appointment  of  trustees  to  administer 
the  trust,  and  authorizing  and  directing  them  b}^  proper  suit  in  the 
name  of  the  United  States  to  test  the  right  of  the  present  adminis- 
trators to  continue  to  manage  the  school  and  its  propert3^ 

The  hearings  of  the  issue  were  begun  in  July  and  continued  from 
time  to  time  until  late  in  October.  Very  great  public  interest  was 
shown  in  the  elaborate  arguments  which  were  made  on  behalf  of  the 
Philippine  people  by  Senor  Don  Felipe  Calderon,  and  on  behalf  of  the 
Catholic  Church,  which  claimed  control  of  the  property,  by  Arch- 
bishop Chapelle,  the  Apostolic  Delegate,  and  by  Archbishop  Nozaleda, 
of  Manila.  The  Commission  has  not  yet  announced  its  conclusion  as 
to  its  duty  in  the  premises,  but  expects  to  do  so  within  a  month.  The 
issue  is  a  very  important  one.  The  property  of  San  Jose  College  is 
worth  half  a  million  dollars  gold,  and  much  the  same  question  affects 
the  control  of  at  least  one  other  institution  of  charity  in  Manila— the 
large  hospital  of  San  Juan  de  Dios.  Shortly  stated,  the  issue  is 
whether  the  Spanish  Government,  in  its  admitted  right  to  control  the 
management  of  the  particular  trust  property,  was  acting  in  its  secu- 
lar and  civil  capacity,  or  as  a  mere  agent  of  the  Catholic  Church  under 
the  concordat  between  the  Pope  and  the  Spanish  Crown. 

On  the  21st  of  August,  in  reply  to  your  cable  direction  of  the  17th 
of  August,  the  Commission  expressed  its  view  of  the  general  condi- 
tion of  the  islands.  With  the  exception  of  one  or  two  minor  details, 
we  wish  to  confirm  by  this  the  statements  of  that  report.  The  asser- 
tion that  in  Negros  more  sugar  is  in  cultivation  than  ever  before  is 
probably  erroneous.  It  was  derived  from  the  evidence  of  Father 
McKinnon,  who  had  recently  made  a  visit  of  observation  to  all  parts  of 
Negros,  and  who  made  the  statement  to  the  Commission  as  telegraphed. 

The  report  of  General  Smith,  as  Governor  of  Negros,  to  the  Mili- 
tary Governor,  which  the  Commission  has  just  seen,  does  not  agree 
with  this  as  to  amount  of  sugar  in  cultivation  this  year,  though,  and 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  33 

this  probably  explains  Father  McKinnon's  conclusion.  General  Smith 
states  to  the  Commission  that  in  the  character  of  the  cane  raised  and 
the  amount  per  acre  this  is  the  best  year  for  many  years,  but  that 
the  acreage  is  considerably  less  than  formerly,  due  chiefly  to  the 
scarcity  of  capital  and  the  excessive  rates  of  interest  charged  by  the 
banks  and  money  lenders  in  that  island.  At  the  time  the  dispatch  was 
sent  the  province  of  Ilocos  Sur  was  undisturbed  and  was  supposed  to 
be  free  from  insurgents,  but  the  activity  of  the  insurgent  leader  Tinio 
and  the  missionary  work  of  certain  Tagalogs  in  the  towns  between 
August  and  November,  with  the  impetus  furnished  by  the  report  of 
the  American  electoral  campaign,  gathered  a  considerable  force  of 
insurgents  in  the  mountain  range  east  of  the  coast  and  by  the  usual 
methods  produced  unsettled  conditions  in  that  province.  In  Septem- 
ber reports  of  contemplated  formidable  movements  on  the  part  of  the 
insurgents  in  pacified  provinces  induced  what  may  properly  be  called 
a  flurry  of  fear  and  excitement  among  the  natives.  There  was  one  or 
two  insurgent  incursions,  for  spectacular  purposes,  along  the  line  of 
the  railroad,  which,  as  stated  in  the  dispatch,  had  not  been  molested 
for  more  than  five  months  previous. 

The  amount  of  damage  done  to  the  railroad  was  embraced  in  cutting 
some  telegraph  wires,  in  tearing  up  the  track  for  a  short  distance,  and 
in  ditching  one  train.  We  are  informed  by  the  manager  of  the  rail- 
road that  his  confidential  agent  has  discovered  that  all  the  work  was 
done  by  the  people  of  a  barrio  near  the  railroad.  That  it  was  done 
by  them  reluctantly  under  the  threat  of  Tecson,  an  insurgent  leader, 
hiding  in  that  neighborhood;  that  unless  they  did  this  he  would  burn 
the  village.  The  impression  of  great  disturbance  in  the  country  in 
September  and  October,  caused  in  the  way  described,  considerably 
aflected  the  business  between  Manila  and  the  country.  Two  unfor- 
tunate reverses  of  the  United  States  troops,  one  near  Siniloan  and  the 
other  m  Marinduque,  served  to  render  the  insurgent  leaders  more 
defiant  and  boastful,  and  possibly  to  postpone  the  collapse  of  the  insur- 
rection, predicted  in  our  dispatch  as  likely  to  occur  within  sixty  days, 
after  the  election,  for  a  somewhat  longer  period. 

From  all  the  information  we  can  get  it  seems  clear  that  a  great 
majority  of  the  people  long  for  peace  and  are  entirely  willing  to  accept 
the  establishment  of  a  government  under  the  supremacy  of  the  United 
States,  They  are,  however,  restrained  by  fear  from  taking  any  action 
to  assist  the  suppression  of  the  insurrection  which  has  for  its  indis- 
pensable support  a  conspiracy  of  murder.  Without  this,  armed  resis- 
tance to  the  United  States  authority  would  have  long  ago  ceased. 
Anyone  suspected  of  giving  information  to  the  Americans  concerning 
the  insurgents  is  immediately  marked  for  assassination.  The  nuui- 
fications  of  the  conspiracy  are  so  wide  that  it  has  efl'ccted  the  terror- 
ism of  an  entire  people.  It  is  a  Mafia  on  a  very  large  scale. 
23181—04 3 


34  KEPOKTS    Oii    THE    CIVIL    (lOVERNMEKT 

The  clitHculty  the  people  have  in  comniunicatiiig  with  the  Americans, 
betau.se  of  a  want  of  knowledge  of  their  language,  character,  and  cus- 
toms, would  have  a  tendency  to  make  them  silent  in  any  event,  and 
when  this  is  accompanied  by  the  very  present  prospect  of  })eing 
abducted,  boloed,  or  tortured  if  au}^  disclosure  is  made,  it  is  not 
remarkable  that  the  insurgents  are  al)le  to  assume  the  role  of  amigos 
when  pressed  and  hide  themselves  in  barrios  of  the  towns  if  driven 
out  of  the  mountains  where  the}^  have  their  headquarters.  Not  infre- 
.juently  the  municipal  officers  assume  a  double  dut}^  one  to  the  Ameri- 
cans and  one  to  the  insurgents,  though  this  is  not  generally  true 
except  in  those  provinces  near  to  which  an  active  insurgent  head- 
quarters is  situated.  Nor  does  his  double  part  indicate  that  the  sym- 
pathy of  the  municipal  officer  is  with  the  insurgent,  but  only  that  pun- 
ishment for  failure  to  render  service  to  the  insurgents  will  be  much  more 
bloody  and  severe  than  for  infidelity  to  the  Americans  and  the  viola- 
tion of  the  oath  of  allegiance.  We  have  already  made  provision  out 
of  the  public  civil  fund  for  the  widows  and  children  of  two  municipal 
officers  assassinated  by  order  of  the  insurgents  for  loyal  civil  service 
to  the  United  States,  and  there  are  others  with  similar  claims  likely  to 
seek  the  same  relief.  We  do  not  intend  to  establish  a  system  of  pen- 
sions, but  we  think  that  in  such  cases,  when  clear,  it  is  a  wise  public 
polic}^  to  give  all  who  are  risking  their  lives  for  the  United  States  and 
the  best  interests  of  their  country  to  know  that  in  the  unfortunate  case 
of  their  murder  their  families  will  be  taken  care  of  by  a  grateful 
Government. 

In  southern  Luzon  the  conditions  have  impoved  in  the  provinces  of 
Cavite,  Batangas,  and  Laguna  during  the  last  month.  The  province 
of  Tayabas  is  peaceful.  The  towns  are  full  of  people,  a  sure  indica- 
tion of  freedom  from  disturbance,  and  houses  are  difficult  to  secure. 
In  the  Camarines  and  Albay  the  conditions  are  not  so  satisfactory, 
but  they  are  growing  better.  In  the  Visayans  and  Mindanao  the  con- 
ditions are  much  the  same  as  reported  in  our  dispatch  of  August  21, 
except  that  in  Leyte  much  improvement  has  been  made. 

Any  statement  of  the  conditions  prevailing  in  these  islands  during 
the  last  six  months  which  ignores  the  effect  of  the  American  election 
as  a  controlling  element  in  the  situation  is  necessarily  inadequate. 
Since  the  result  was  announced  there  has  been  a  great  decrease  in  insur- 
gent activity.  The  most  intense  interest  was  felt  by  the  insurgents 
before  the  election  in  the  issue,  and  the  most  intense  disappointment 
since,  which  will  certainly  effect  the  collapse  of  the  insurrection  in  the 
near  future.  Capital  and  all  business  interests  hung  upon  the  predic- 
tions of  success  of  the  one  party  or  the  other.  No  one  breathed  more 
freely  and  took  more  enjoyment  in  the  result  as  announced  than  the  con- 
servative Filipino  people  who  had  anything  to  lose  from  the  anarchy 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  35 

which  it  was  sure  would  follow  in  the  abandonment  of  these  islands 
under  the  policy  of  the  defeated  party  in  the  late  election,  as  that 
polic}''  was  understood  here  b}'^  the  insurrectos  and  other  Filipinos. 
From  now  on  conditions  in  these  islands  will  grow  steadily  better, 
and  however  formidable  the  difficulties  really  are,  the  possibilities  that 
present  themselves  of  improving  the  condition  of  the  peopls  in  educa- 
tion, wealth,  comfort,  and  in  the  knowledge  of  how  to  govern  them- 
selves can  not  but  awaken  the  deepest  enthusiasm  on  the  part  of  every 
friend  of  civilization  familiar  with  the  actual  conditions. 

On  the  1st  of  September  the  Commission  began  its  legislative  and 
executive  duties  under  the  instructions  of  the  President.  It  adopted 
the  policy  of  passing  no  laws,  except  in  cases  of  emergenc}',  without 
publishing  them  in  the  dail}^  press,  after  they  had  passed  a  second 
reading,  and  giving  to  the  public  an  opportunity  to  come  before  the 
Commission  and  suggest  objections  or  amendments  to  the  bills.  The 
Commission  has  likewise  adopted  as  part  of  its  regular  procedure  the 
submission  of  all  proposed  bills  to  the  Militar}"  Governor  for  his  con- 
sideration and  comment  before  enactment.  We  think  that  the  holding 
of  public  sessions  furnishes  instructive  lessons  to  the  people,  as  it 
certainly  secures  to  the  Commission  a  means  of  avoiding  mistakes. 
The  announcement  of  the  Commission  on  this  subject  is  appendecJ, 
marked  "  Exhibit  B."  The  Commission  has  now  passed  fortj^-seven 
laws  of  more  or  less  importance.  These  laws  have  been  forwarded  to 
you  as  passed.  A  complete  file  also  accompanies  this,  marked  ' '  Exhibit 
L."  A  municipal  code  has  been  prepared  and  forwarded  to  you  for 
the  consideration  of  one  or  two  critical  matters  and  has  not  yet  ])een 
adopted,  pending  your  consideration  of  it.  A  tariff  bill,  hereafter  to 
be  referred  to  more  in  detail,  has  been  prepared  modif}' ing  the  Span- 
ish tariff  and  arranging  the  schedule  so  as  to  secure  an  adequate  rev- 
enue with  the  least  burden  upon  those  least  able  to  stand  it.  It  has 
not  been  disposed  of  in  the  Commission,  and  will  not  be  adopted  until 
all  the  interests  in  Manila  and  the  islands  shall  have  had  an  opportu- 
nity to  be  heard  on  its  various  provisions  and  until  it  shall  have  been 
forwarded  for  consideration  in  America  and  approval  by  you. 

A  judicial  and  civil  procedure  bill  is  nearly  completed.  The  same 
thing  is  true  of  a  bill  for  provincial-government  organization.  A  new 
internal-tax  law  must  then  be  considered.  The  wealth  of  this  country 
has  largely  been  in  agricultural  lands  and  thej^  have  been  entirely 
exempt.  This  enabled  the  large  landowners  to  escape  any  other  taxa- 
tion than  the  urbana,  a  tax  which  was  imposed  upon  the  rental  value 
of  cit}^  buildings  only,  and  the  cedula  tax,  which  did  not  in  any  case 
exceed  137.50,  Mexican,  a  person.  We  think  that  a  land  tax  is  to  be 
preferred,  but  of  this  there  will  be  found  more  detailed  discussion 
below. 


3G  REPORTS    OF    THE    CIVIL    OOVKliNMENT 

TllK    CIVIL    SEKVICE. 

The  fifth  law  adopted  by  the  Commission  was  an  act  pi-oviding  for 
the  oroanization  of  a  civil  service  on  the  basis  of  merit. 

It  was  the  purpose  of  the  Commission  in  passing  the  civil  service 
bill  to  provide  a  S3^stem  which,  after  it  should  begin  to  work,  would 
secure  the  selection  and  promotion  of  civil  servants  solely  on  the  ground 
of  merit,  and  would  permit  anyone  by  a  successful  competitive  exam- 
ination to  enter  the  service  at  the  lowest  rank  and,  by  the  efficient  dis- 
charge of  his  duties  and  further  examinations  for  promotion,  to  reach 
the  head  of  an}^  important  department  of  the  government. 

The  difficulties  in  securing  a  good  civil  service  in  the  islands  are 
formidable.  There  are  two  classes  of  applicants,  one  the  Americans 
and  the  other  the  Filipinos.  The  Filipinos  have  had  no  training  except 
from  being  in  the  Spanish  service  or  observing  its  workings.  That 
service  was  notoriously  corrupt.  The  salaries  paid  were  palpably 
inadequate  for  the  support  of  life  and  were  a  plain  intimation  to  the 
civil  servant,  in  their  inadequacy,  that,  if  he  could,  he  was  expected 
to  add  to  his  official  income  in  illegal  ways  and  ])y  peculation.  This  is 
not  only  characteristic  of  Spanish  civil  service,  but  also  of  that  of  all 
oriental  governments,  and  in  the  outset  it  is  not  too  severe  to  say  that 
the  percentage  of  Filipinos  who  can  be  trusted  to  handle  mone}^  in 
public  office  or  to  exercise  any  direct  official  control  over  their  fellow- 
residents  without  peculation  or  the  imposition  of  illegal  charges  is 
comparatively  small.  They  must  be  tai^ght  by  better  salaries  and  by 
the  example  of  the  Americans  a  different  standard  of  integrity.  On 
the  other  hand,  the  Americans  who  come  to  these  islands  come  eight  or 
ten  thousand  miles,  come  with  a  venturesome  spirit,  come  with  the  idea 
of  amassing  a  competence  by  their  stay  in  the  islands.  They  are  exposed 
in  any  important  official  position  where  there  is  opportunity  for  defeat- 
ing the  rights  of  the  Government  to  constant  temptations  offered  them 
b}'^  interested  persons  seeking  to  escape  lawful  burdens  or  to  obtain 
fraudulent  advantage,  and  who  have  no  other  conception  of  a  public 
officer  than  of  one  who  is  to  be  reached  1)}^  bribery  if  the  sum  offered 
be  large  enough. 

Men  may  leave  the  United  States  honest,  but  with  the  weakening  of 
moral  restraints  of  home  associations  and  with  the  anxious  desire  to 
make  so  long  a  trip  result  successfully  in  a  pecuniary  way,  demoral- 
ization and  dishonesty  are  much  more  likely  to  follow  than  at  home. 
To  avoid  the  dangers  presented  by  these  conditions,  it  is  necessary, 
first,  to  banish  all  favoritism  and  political  considerations  from  the 
selection  of  civil  servants  and  rigidly  to  enforce  the  requirements  of  a 
competitive  examination  and  a  satisfactory  showing  by  the  applicant 
of  his  good  moral  character;  second,  to  pay  adequate  salaries  and  to 
allow  liberal  leaves  of  absence,  adapted  to  preservation  of  health  in 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  37 

the  tropics,  thus  securing-  that  contentment  with  the  service  without 
which  good  work  is  not  possible;  and,  third,  to  awaken  an  enthusiasm 
in  the  service  b}^  offering  as  a  reward  for  faithful  and  highly  efficient 
work  a  reasonable  prospect  of  promotion  to  the  highest  positions  in  the 
Government.  It  is  essential  that  the  system  be  administered  with  the 
utmost  rigidity  and  impartiality,  liccause  in  no  part  of  the  world  does 
rumor  of  injustice,  of  fraud,  and  of  underhand  methods  in  the  admin- 
istration of  public  office  receive  so  much  credit  as  in  the  Orient;  and 
if  dissatisfaction,  produced  by  a  sense  of  injustice,  finds  place  in  the 
civil  service  of  the  islands,  it  will  greatly  diminish  its  efficiency.  The 
commission  has  passed  a  law  which  it  believes  goes  further  than  any 
civil-service  law  of  any  State  or  of  the  United  States  in  carrying  out 
the  theory  of  the  merit  system,  and  it  takes  this  opportunitj'  to  testify 
to  the  earnest  assistance  and  cooperation  in  maintaining  pure  the  civil 
service  of  these  islands  received  from  the  President  and  3^ourself . 

We  are  directed  in  our  instructions  to  prefer  the  Filipino  for  office 
when  other  qualifications  are  equal,  and  we  have  by  the  act  imposed 
this  as  a  mandate  upon  the  appointing  power.  We  have  also  pre- 
ferred in  the  same  manner  discharged  soldiers  and  sailors  of  the 
United  States.  We  could  not  for  ol^vious  reasons  introduce  provisions 
discriminating  against  the  Filipinos  because  of  the  tendency  of  their 
previous  training,  already  referred  to.  To  secure  appointments  from 
the  two  races  according  to  their  capacitj^  and  qualifications,  we  must 
rel}^,  not  only  upon  the  examinations,  but  also  upon  the  discretion  of 
the  appointing  power  in  its  selection  from  the  list  of  eligibles  pre- 
sented by  the  civil-service  board,  and  upon  the  power  of  removal 
which  remains  fully  vested  in  the  appointing  power,  unhampered  by 
any  provisions  of  the  statute.  The  difficulties  in  selection  presented 
by  the  education  and  tendency  of  the  Filipino  will  gradually  grow 
less  and  less  as  the  service  grows  older  and  as  the  Filipino  learns  a 
different  official  standard  of  integrity  and  sees  upon  what  promotion 
in  the  civil  service  depends. 

A  present  question  in  the  civii  service  is  the  high  cost  of  living  in 
Manila.  There  are  not  enough  houses  in  Manila  to  make  comfortable 
places  of  residence  for  the  civil  servants  who  come  here  from  the 
United  States.  The  high  prices  of  lumber  and  the  rise  in  the  cost  of 
la})or  and  materials  have  all  retarded  building.  Shortly  after  the  tim- 
ber regulations  were  issued  by  the  military  government  there  was  a 
reduction  in  the  pri(;e  of  lumber,  and  it  was  hoped  that  the  reduction 
would  continue,  but  the  demand  for  it  was  so  great  that  the  supplies 
of  cut  lumber  on  the  coast  awaiting  shipment  to  Manila  were  rapidly 
exhausted,  and  the  means  for  cutting  it  in  the  mountains,  due  to  dis- 
turbed conditions,  are  so  limked  that  it  may  be  some  considerable  time 
before  the  price  is  reduced  to  a  normal  figure.  It  has  been  proposed, 
and  it  seems  a  practical  suggestion,  that  the  American  civil  servants 

1. 'if:  218 


38  REPORTS    OF    THE    CIVIL    GOVERNMENT 

perfect  an  organization  and  work  out,  with  the  assistance  of  the  gov- 
ernmental authorities,  a  plan  for  a  cooperative  civil-service  hotel  or 
boarding  house,  and  possibh'  a  cooperative  store.  If  one  is  well 
housed  in  Manila,  it  is  a  very  pleasant  city  to  live  in.  If  he  is  not  thus 
fortunately  placed  he  can  but  have  an  unpleasant  impression  of  life 
here  and  impart  it  to  others.  It  is  the  duty  of  the  Insular  Government 
to  look  after  its  employees  and  to  see  that  they  are  comfortable;  for 
only  under  such  conditions  can  the  best  work  be  obtained  from  them. 

The  question  of  what  kind  of  examination  or  what  kind  of  a  system 
of  selection  shall  be  used  for  school  teachers  has  not  yet  been  decided, 
and  the  Commission  awaits  the  recommendation  in  this  regard  of  Mr. 
Atkinson,  the  General  Superintendent  of  Public  Instruction. 

The  Commission  has  appointed  as  members  of  the  Civil  Service 
Board,  Mr.  Frank  M.  Kiggins,  for  years  a  skilled  examiner  of  the 
United  States  Civil  Service  Commission,  Mr,  W.  L.  Pepperman,  also  for 
a  long  time  an  efficient  member  of  the  examining  staff  of  the  United  States 
Civil  Service  Commission,  and  Chief  Justice  Arellano,  who  has  had 
considerable  knowledge  of  the  workings  of  the  Spanish  civil  service. 
The  Chief  Justice  declined  to  accept  any  compensation,  and  would  take 
the  office  only  temporarily  in  order  to  set  the  system  going  and  to 
assist  in  the  first  and  most  important  function  of  the  board,  the  adop- 
tion of  rules  for  the  execution  of  the  act.  The  rules  have  not  as  j^et 
been  completed  and  issued,  and  it  will  probably  be  from  thirty  to  sixty 
da3^s  before  the  regular  system  of  examinations  can  be  begun. 

The  law  contemplates  the  holding  of  examinations  both  in  the  United 
States  and  in  the  Philippine  Islands,  and  requires  that  the  examinations 
shall  cover  the  Spanish  and  the  English  languages  where  the  applicant 
seeks  a  x>osition  in  which  a  knowledge  of  the  two  languages  is  essential. 

It  W'as  impossible,  in  applying  the  merit  system  to  a  civil  service 
already  formed  and  carrjdng  an  an  extensive  government,  to  end  the 
terms  of  those  at  present  employed  and  to  require  them  to  seek  their 
places  anew  by  competitive  examinations.  This  would  have  demoral- 
ized the  service  and  created  paralyzing  confusion.  We  deemed  it  wiser 
to  empower  the  civil  service  board  in  its  discretion  to  require  employees 
in  the  service  at  the  time  of  the  passage  of  the  act  to  take  examina- 
tions, but  subject  to  this  restriction — to  treat  them  as  if  they  had  come 
into  the  service  regularly  and  as  entitled  to  stand  for  promotion.  Upon 
the  recommendation  of  the  Civil  Service  Board  and  the  Militar}"  Gov- 
ernor, we  have  also  provided  that  soldiers  detailed  to  perform  duties 
in  the  civil  service  shall  stand  upon  the  same  footing  when  discharged 
from  the  army  as  if  they  had  regularly  entered  the  service  when 
detailed.  The  Civil  Service  Board,  which  has  been  investigating  the 
personnel  of  the  service,  reports  that  the  soldiers  who  have  been 
detailed  to  clerical  positions  have  been  carefully  selected  from  the  large 
number  available  and  are  on  the  whole  the  best  clerks  now  employed. 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  39 

One  of  the  problems  confronting  the  Commission  is  the  substitution 
of  civilians  for  army  officers  and  enlisted  men  now  detailed  for  the 
discharge  of  civil  duties.  In  "Exhibit  C "  there  is  shown  a  memoran- 
dum of  the  number  of  officers,  enlisted  men,  American  civilians, 
natives,  Spaniards,  and  Chinese,  engaged  in  the  civil  service,  also  a 
comparative  percentage  statement  of  the  Americans  and  natives 
engaged  in  the  service.  Under  the  amendment  to  the  civil  service 
act  already  referred  to,  permitting  officers  and  enlisted  men  detailed 
for  civil  service  to  retain  their  positions  on  receiving  their  discharge 
from  the  Army,  it  is  thought  that  many  of  the  volunteer  officers  and 
men  will  be  glad  to  continue  in  the  service  as  civilians.  The  other 
places  the  Commission  will  probably  be  able  to  fill  from  the  list  of 
eligibles  to  be  furnished  by  the  Civil  Service  Board,  which  will  be 
probably  by  Februar}^  next. 

THE   FRIARS. 

(^rdinarjiV,  the  Government  of  the  United  States  and  its  servants  -^ 
have  Tittle  or  no  concern  with  religious  societies  or  corporations  and 
their  members.  With  us  the  Church  is  so  completely  separated  from 
the  State  that  it  is  difficult  to  imagine  cases  in  which  the  policy  of  a 
church  in  the  selection  of  its  ministers  and  the  assignment  of  them  to 
duty  can  be  regarded  as  of  political  moment,  or  as  a  proper  subject  of 
comment  in  the  report  of  a  public  officer. 

Klin  the  pacification  of  the  Philippines  by  our  Government,  however, 
it  is  impossible  to  ignore  the  very  great  part  which  such  a  question 
plays.  Excepting  the  Moros,  who  are  Moslems,  and  the  wild  tribes, 
who  are  pagans,  the  Philippine  people  belong  to  the  Roman  Catholic 
Church.  Total  number  of  Catholic  souls  shown  by  the  church  regis- 
try in  1898  was  6,559,998.  To  care  for  these  in  that  year  there  were 
in  the  Archipelago  746  regular  parishes,  105  mission  parishes,  and  116 
missions,  or  967  in  all.  Of  the  regular  parishes  all  but  150  were 
administered  by  Spanish  monks  of  the  Dominican,  Augustinian,  or 
Franciscan  orders.  Natives  were  not  admitted  to  these  orders.  There 
were  two  kinds  of  Augustinians  in  these  islands,  the  shod  and  the 
unshod.  The  latter  are  called  Recolletos  and  are  merely  an  oft'shoot 
from  the  original  order  of  St.  Augustine.  By  the  revolutions  of  1896 
and  1898  against  Spain,  all  the  Dominicans,  Augustinians,  Recolletos, 
and  Franciscans  acting  as  parish  priests  were  driven  from  their  parishes 
to  take  refuge  in  Manila.  Forty  were  killed  and  103  were  imprisoned 
and  were  not  all  released  until  by  the  advance  of  the  American  troops 
it  became  impossible  for  the  insurgents  to  retain  them.  Of  the  1,124 
who  were  in  the  islands  in  1896,  but  472  remain.  The  remainder  were 
either  killed  or  died,  returned  to  Spain,  or  went  to  China  or  South 
America. 

There  were  aiso  m  the  islands  engaged  in  missions  an^.  missionary 


40  EEPORTS    OK    THE    (UVIL    (JOVKKNMKNT 

parishes  42  Jesuits,  10  Capuchins,  and  6  Benedictines,  and  while  many 
of  these  left  their  missions  because  of  disturbed  conditions,  they  do  not 
seem  to  have  been  assaulted  or  imprisoned  for  an}'  length  of  time.  In 
addition  to  the  members  of  the  monastic  orders,  there  were  150  native 
secular  clergymen  in  charge  of  small  parishes  who  were  not  disturlied. 
There  were  also  many  native  priests  in  the  larger  parishes  who  assisted 
the  friar  curates,  and  they  have  remained,  and  they  have  been  and 
are  acting  as  parish  priests.  The  burning  political  question,  discus- 
sion of  which  strongly  agitates  the  people  of  the  Philippines,  is  whether 
the  members  of  the  four  great  orders  of  St.  Dominic,  St.  Augustine, 
and  St.  Francis,  and  the  Recolletos  shall  return  to  the  parishes  from 
which  they  were  driven  by  the  revolution.  Colloquiall}^  the  term 
"  friars"  includes  only  the  members  of  these  four  orders.  The  Jesuits, 
Capuchins,  Benedictines,  and  the  Paulists,  of  whom  there  are  a  few 
teachers  here,  have  done  only  mission  work  or  teaching,  and  have  not 
aroused  the  hostility  existing  against  the  four  large  orders  to  which 
we  are  now  about  to  refer. 

Archbishop  Chapelle,  of  New  Orleans,  Apostolic  Delegate,  called  on 
the  Commission  soon  after  its  arrival  and  requested  that  in  any  inves- 
tigation into  the  matter  of  the  friars  which  the  Commission  might 
deem  it  wise  to  institute,  the  provincials  of  the  orders,  and  the  five 
bishops,  including  the  archbishop  of  Manila,  who  were  all  of  them 
friars,  should  be  given  a  hearing.  Accordingly  the  commissioner  to 
W' horn  the  subject  was  assigned  was  enabled  by  the  courtesy  and  assist- 
ance of  Archbishop  Chapelle  to  take  the  statements  of  the  provincials 
of  all  the  monastic  orders  resident  in  Manila,  and  of  the  archbishop  of 
Manila,  the  bishop  of  Vigan,  and  the  bishop  of  Jaro.  The  bishop  of 
(!!ebu  had  returned  to  his  diocese.  So  too  had  the  episcopal  adminis- 
trator of  the  diocese  of  Nueva  Caceres.  These  two  gentlemen  were 
not  therefore  examined.  The  questions  asked  covered  all  the  charges 
which  had  been  made  against  the  friars,  the  feeling  of  the  people 
toward  them,  the  extent  of  their  propert}^  the  part  the}^  took  in  the 
politics  and  government  of  the  islands  under  Spain,  and  the  possibility 
of  their  return  to  their  parishes.  Other  witnesses,  Philippine  laymen, 
American  Catholic  priests,  army  officers,  Catholic  and  Protestant,  and 
newspaper  correspondents,  were  examined  in  great  number,  though  all 
their  statements  could  not  be  taken  in  writing.  We  have  attempted 
without  bias  to  reach  a  conclusion  as  to  the  truth,  and  shall  now 
state  it. 

The  friar  as  a  parish  priest  was  usually  the  only  man  of  intelligence 
and  education  who  knew  both  the  native  dialect  and  the  Spanish  lan- 
guage well  in  his  parish.  His  position  as  the  spiritual  guide  of  the 
people  necessarily  led  to  his  acting  as  intermediary  between  them  and 
the  rest  of  the  world  in  secular  matters.  In  only  a  few  of  the  parishes 
was  there  any  other  Spanish  representative  of  the  Government  of 


OF    THE    PHILIPPINE    ISLANDS,    1900-190.*?.  41 

Spain  than  the  friar  priest.  At  first  actuall}',  and  afterwards  by  law, 
he  came  to  discharge  man}^  civil  functions  and  to  supervise,  correct,  or 
veto  everything  which  was  done  or  sought  to  be  done  in  the  pueblo 
which  was  his  parish.  The  provincial  of  the  Franciscan  order  de- 
scribes his  civil  functions  as  follows: 

The  following  may  be  mentioned  as  among  the  principal  duties  or  powers  exer- 
cised by  the  parish  priest:  He  was  inspector  of  primary  schools;  president  of  the 
health  board  and  board  of  charities;  president  of  the  board  of  urban  taxation 
(this  was  published  lately) ;  inspector  of  taxation;  previously  he  was  the  actual  presi- 
dent, but  lately  the  honorary  president  of  the  board  of  public  works. 

He  certified  to  the  correctness  of  the  cedulas,  seeing  that  they  conformed  to  the 
entries  in  the  parish  books.  They  did  not  have  civil  registration  here,  and  so  they 
had  to  depend  upon  the  books  of  the  ijarish  priest.  These  books  were  sent  in  for  the 
purpose  of  this  cedula  taxation,  but  were  not  received  by  the  authorities  unless 
vised  by  the  priest. 

He  was  president  of  the  board  of  statistics  because  he  was  the  only  person  who 
had  any  education.  He  was  asked  to  do  this  work  so  that  l:)etter  results  could  be 
obtained.  It  was  against  the  will  of  the  parish  priest  to  do  this,  but  he  could  only 
do  as  he  was  told.  If  they  refused  they  were  told  that  they  were  unpatriotic  and 
not  Spaniards.  If  they  had  declined  they  would  have  been  removed  from  their 
charge. 

He  was  president  of  the  census  taking  of  the  town.  Under  the  Spanish  law  every 
man  had  to  be  furnished  with  a  certificate  of  character.  If  a  man  was  imprisoned 
and  he  was  from  another  town  they  would  send  to  that  other  town  for  his  antece- 
dents, and  the  court  would  examme  whether  they  were  good  or  bad.  They  would 
not  be  received,  however,  unless  the  parish  priest  had  his  vise  on  them.  The  priest 
also  certified  as  to  the  civil  status  of  j^ersons. 

Every  year  they  drew  lots  for  those  who  were  to  serve  in  the  army,  every  fifth 
man  drawn  being  taken.  The  parish  priest  would  certify  as  to  that  man's  condi- 
tion. *  *  *  Every  year  they  would  go  to  what  they  call  the  sacramental  books 
and  get  the  names  of  all  those  who  were  20  years  of  age.  This  list  being  certified  to 
by  the  parish  priest  the  names  were  placed  in  an  urn  and  then  drawn  out.  Every 
fifth  man  was  taken.  *  *  *  They  disliked  the  service.  Many  of  them  would 
take  to  the  woods  and  the  civil  guard  would  have  to  go  after  them  and  bring  them 
back.  They  would  Ije  put  in  jail  and  guarded  until  they  could  be  taken  to  the 
capital  city.     There  were  many  cases  of  desertion.     *    *    * 

By  law  the  priest  had  to  be  present  when  there  were  elections  for  municipal  offices. 
Very  often  the  parish  priest  did  not  want  to  go,  but  the  people  would  come  to  him 
and  say,  "Come,  for  there  will  be  disturbances  and  you  will  settle  many  difliculties." 

He  was  the  censor  of  the  municipal  budgets  before  they  were  sent  to  the  provin- 
cial governor. 

He  was  the  president  of  the  prison  board  and  inspector  (in  turn)  of  the  food 
provided  for  the  jirisoners. 

lie  was  a  member  of  the  provincial  board.  Besides  the  parish  priest,  there  were 
two  curates  who  served  on  this  board.  Before  the  provincial  board  came  all  matters 
relating  to  public  works  and  other  cognate  matters.  All  estimates  for  public  build- 
ings in  the  municipalities  were  submitted  to  this  l)oard. 

He  was  also  a  member  of  the  board  for  partitioning  Crown  lands.  After  the  land 
was  surveyed  and  divided  and  a  person  wanted  to  sell  his  land  he  would  present  his 
certificate,  and  the  board  would  pass  on  the  question  whether  or  not  he  was  the 
owner.     *    *    * 

In  some  cases  the  parish  priests  in  the  capitals  of  the  provinces  would  act  as  audi- 
tors. In  some  of  these  places  there  would  be  only  the  administrator,  and  then  the 
curate  would  come  iu  and  act  as  auditor. 


42  KKPOUTS    OF    THE    CIVIL    (iOVKKNMKNT 

A  givat  many  of  tlic  duties  1  am  now  eimmoratinji;  were  jjivon  U^  the  prieata  by  the 
municipal  law  of  JNhuira. 

Ho  was  also  counselor  ior  the  municipal  council  when  that  body  met.     They  would 
notify  him  that  they  were  goins  to  hold  a  meeting  and  invite  liim  to  be  present. 
■   The  }>riest  was  the  supervisor  of  the  election  of  the  police  force.     This  also  had  to 
be  submitted  to  the  provincial  governor. 

He  was  the  examiner  of  the  scholars  attending  the  first  and  second  grades  in  the 
public  schools. 

He  was  the  censor  of  the  plays,  comedies,  and  dramas  in  the  language  of  the  conn- 
try,  deciding  whether  they  were  against  the  public  peace  or  the  public  morals. 
These  plays  were  presented  at  the  various  fiestas  of  the  people. 

Besides  the  above,  there  were  other  small  things  which  devolved  upon  the  priests. 

It  is  easy  to  see  from  this  that  the  priest  was  not  only  the  spiritual 
guide,  but  that  he  was  in  every  sense  the  municipal  ruler. 

It  further  appeared  from  evidence  of  other  friars  that  whenever  a 
resident  of  anj^  pueblo  was  suspected  of  being  a  disturber  of  the  peace 
or  a  plotter  against  the  Government,  or  a  dangerous  character  in  other 
respects,  no  action  was  taken  until  the  parish  priest  was  consulted  by 
the  head  of  the  insular  government. 

During  the  j^ears  immediately  preceding  1898,  there-  were  many 
deportations  of  residents  of  the  various  puelilos  to  the  far  distant 
southern  islands  of  the  group,  and  whether  unjustly  or  not  the  parish 
priests  were  charged  by  the  people  with  being  instrumental  in  bring- 
ing these  about,  and  it  is  said  by  antifriar  witnesses,  though  denied  by 
the  friars,  that  in  most  of  these  cases  the  deportations  were  initiated 
by  the  friars,  who  for  this  reason  came  to  be  looked  on  by  the  people 
as  having  the  power  of  life  and  death  over  their  parishioners. 

The  archbishop  and  bishops  formed  part  of  what  was  known  in 
Manila  as  the  board  of  authorities.  The  duties  of  this  board  were 
principally  to  investigate  matters  of  urgent  moment  and  in  times  of 
crises  to  advise  the  governor-general.  The  archbishop  and  bishops 
constituted  the  section  of  the  board  on  "  government  and  fomento" 
(analogous  to  our  Department  of  the  Interior).  The  archbishop  and 
bishops  and  provincials  of  the  religious  orders  also  formed  a  part  of 
the  council  of  administration,  a  body  analogous  to  the  council  of  State 
of  Spain  or  France,  charged  with  advising  the  governor-general. 
Each  order  had  a  loading  officer  resident  in  Madrid,  through  whom  the 
court  of  Spain  could  be  quickly  and  directly  reached  by  the  order  in 
the  Philippines  without  the  intervention  of  the  civil  or  military 
authorities  of  the  islands.  .--The  participation  of  the  friars  in  the 
affairs  of  the  parish,  provincial,  and  insular  governments  was  much 
more  effective  to  secure  entire  control  of  the  political  situation  than  if 
the  priests  had  been  merely  secular  and  not  bound  together  with  the 
close  association  of  the  monastic  orders. 

The  truth  is  that  the  whole  Government  of  Spain  in  these  islands 
rested  on  the  friars.  •  To  use  the  expression  of  the  provincial  of  the 
Augustinians,  the  friars  were  "the  pedestal  or  foundation  of  the  sov 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  43 

ereignty  of  Spain  in  these  islands,"  which  being  removed,  "the  whole 
structure  would  topple  over."  The  number  of  Spanish  troops  in  these 
islands  did  not  exced  5,000  until  the  revolution.'  The  tenure  of  office 
of  the  friar  curate  was  permanent.  There  was  but  little  rotation  of 
priests  among"  the  parishes.  Once  settled  in  a  parish,  a  priest  usually 
continued  there  until  superannuation.  He  was,  therefore,  a  constant 
political  factor  for  a  generation.  The  same  was  true  of  the  arch- 
bishop and  the  bishops.  The  civil  and  militarv  officers  of  Spain  in  the 
islands  were  here  for  not  longer  than  four  j^ears,  and  more  often  for  a 
less  period.  The  friars,  priests,  and  bishops,  therefore,  constituted  a 
solid,  powerful,  permanent,  well-organized  political  force  in  the  islands 
which  dominated  policies.  The  stay  of  those  officers  who  attempted 
to  pursue  a  course  at  variance  with  that  deemed  wise  bj^  the  orders 
was  invariabl}'  shortened  hy  monastic  influence. 

Of  the  four  great  orders,  one,  the  Franciscans,  is  not  permitted  to 
own  property  except  convents  and  schools.  This  is  not  true  of  the 
other  three.  The}^  own  some  valuable  business  propert}"  in  Manila 
and  have  large  amounts  of  monej"  to  lend.  ,But  the  chief  property  of 
these  orders  is  in  agricultural  land.  The  total  amount  owned  by  the 
three  orders  in  the  Philippin  i-^  approximately  403,000  acres.  Of 
this  121,000  acres  is  in  the  province  of  Cavite  alone.  The  whole  is 
distributed  as  follows: 

Luzon : 

Province  of —  Acres. 

Cavite , 121,747 

Lagima 62, 172 

Manila .^. 50, 145 

Bulaciln 39,  441 

Morong , 4,  940 

Bataan 1, 000 

Cagayan 49,  400 

Cebu,  island  of 16, 413 

Mindoro,  island  of 58, 455 

Total 403,713 

-  The  Augustinians  were  granted  b}"  the  Spanish  Government  a  large 
estate  in  the  sparsch'  settled  province  of  Cagayan  in  northern  Luzon 
in  1880  with  the  hope  that  they  might  invest  capital  there  and  improve 
the  country.  The  Recolletos  acquired  in  the  same  manner  and  for  the 
same  purpose  even  a  larger  estate  in  the  wild  and  unsettled  island  of 
Mindoro  in  1894.  With  these  exceptions  the  lands  held  by  the  friars 
have  been  theirs  for  more  than  a  generation,  and  the}^  have  owned 
most  of  the  valuable  estates  for  one  or  two  centuries.  In  few  instances, 
it  is  believed,  can  their  ownership  be  successfully  attacked  in  law,  for 
prescription  has  supplied  any  defect  which  might  have  been  in  their 
original  titles.  This  is  the  concession  of  Don  Felipe  Calderon,  one  of 
the  brightest  of  the  Filipino  lawyers  and  most  prominent  in  his  oppo- 


44  REPORTS    OF    THK    CIVIL    (U)VKRNMENT 

sition  to  the  friar.'^,  though  ho  suggests  that  the  friars  had  such  power 
to  defeat  ehiinis  against  thein  under  the  Spanish  regime  as  to  furnish 
a  just  reason  for  suspending  the  operation  of  prescription. 

The  suggestion  is,  however,  not  believed  to  be  a  tenable  one. 
Moreover,  no  adverse  claimants  to  agricultural  lands  held  by  the 
friars  have  appeared  before  the  Commission  or  the  Courts,  except  cer- 
tix'm  tenants  of  an  estate  lying  near  Calamba  in  the  province  of  Laguna, 
and  the  issue  made  b}'  them  can  be  readily  settled  in  the  ordinary 
tribunals.  In  the  older  provinces  of  Cavite,  Laguna,  Manila,  and 
Bulacan,  the  haciendas  of  the  friars  were  very  well  cultivated  before 
the  war  and  w^ere  quite  valuable.  On  some  of  the  estates  large  amounts 
of  mone}'  were  invested  b}"  the  orders  in  furnishing  proper  irrigation 
and  other  improvements.  Of  the  total  number  of  acres  of  all  the  land 
held,  the  Dominicans  have  161,953;  the  Augustinians,  1.51,742;  and  the 
Recolletos,  93,035.  The  annual  income  of  the  Dominicans  from  their 
lands  before  the  war  was  $211,356  (Mexican),  and  that  of  the  Augus- 
tinians was  $150,000  (Mexican).  The  income  of  the  Recolletos  must 
have  been  considerably  less,  so  that  it  is  unlikely  that  the  annual 
income  from  all  their  agricultural  land  ever  exceeded  1450,000  (Mexi- 
can). The  land  was  rented  on  shares  in  small  holdings.  Leases  were 
given  for  three  years,  and  no  assignment  was  permitted  without  the 
consent  of  the  order.  Tenancy  usually  continued  in  the  same  family 
and  the  tenant  right  seems,  sometimes,  to  have  been  considered  valu- 
able. It  is  understood  that  for  the  last  two  j^ears  the  friars  have  not 
attempted  to  collect  rents  from  persons  occupying  their  lands.  On 
the  other  hand,  agents  of  the  insurgents,  claiming  title  to  the  land  by 
virtue  of  confiscation  acts  of  the  so-called  Malolos  government,  have, 
from  time  to  time,  made  collections  from  the  tenants. 
-The  friars  were  exempt  from  trials  for  ofl'enses,  except  the  most 
heinous,  in  the  ordinary  civil  courts  of  the  islands  under  the  Spanish 
rule,  and  were  entitled  to  a  hearing  before  an  ecclesiastical  court,  and 
even  in  the  excepted  cases  trials  must  first  T>o  had  in  the  latter  tribunal. 
-  It  hr-s  been  frequently  charged  that  there  was  much  immorality 
among  the  friars,  and  that  to  this  is  duo  the  popular  hostility  against 
them.  The  friar  witnesses  denied  the  charges  of  general  immorality, 
admitting  only  isolated  cases,  which  they  said  were  promptly  disci- 
plined. The  evidence  on  this  point  to  the  contrary,  however,  is  so 
strong  that  it  seems  clearly  to  establish  that  there  were  enough 
instances  in  each  province  to  give  considerable  ground  for  the  gen- 
eral report.  It  is  not  strange  that  it  should  have  been  so.  There 
were,  of  course,  many  educated  gentlemen  of  high  moral  standards 
among  the  friars.  The  bishops  and  provincials  who  testified  were  all 
of  this  class.  But  there  were  others,  brought  from  the  peasant  class 
in  Andalusia,  whose  training  and  education  did  not  enable  them  to 


OF    THE    PFIILIPTINP:    islands,    U)00-1903.  45 

resist  temptations  which,  under  the  peculiar  conditions,  were  excep- 
tionally powerful.     As  the  bishop  of  Jaro  said: 

You  must  bear  in  mind  it  would  be  very  strange  if  some  priests  should  not  fall.  To 
send  a  young  man  out  to  what  might  be  termed  a  desert,  the  only  white  man  in  the 
neighborhood,  surrounded  by  elements  of  licentiousness,  with  nobody  but  the 
Almighty  to  look  to,  with  the  climatic  conditions  urging  him  to  follow  the  same 
practices  as  surround  him,  it  is  a  miracle  if  he  does  not  fall.  Fur  instance,  you 
take  a  young  man  here  in  the  seminary,  who  is  reading  his  breviary  all  the  time  in 
the  cloister,  under  discipline  all  the  time,  seeing  nobody,  and  suddenly  transplant 
him  to  a  place  where  he  is  monarch  of  all  he  surveys — he  sees  the  women  half 
clothed,  and  as  he  is  consulted  on  all  questions,  even  of  morality  and  immorality, 
his  eyes  are  opened,  and  if  he  is  not  strong  he  will  fall. 

But  while  the  charges  have  considerable  truth  in  them,  another  fact 
clearl}^  appeared  which  makes  such  iinmorality  as  there  was  largely- 
irrelevant  to  the  issue  we  are  considering.  This  was  that  the  immo- 
rality was  not  the  chief  ground  for  hostility  to  the  friars.  The  com- 
mon people  are  not  generally  licentious  or  unchaste,  but  the  living 
together  of  a  man  and  woman  without  the  marriage  ceremon}^  is  not 
infrequent  and  is  not  condemned.  It  did  not  shock  the  common  people 
or  arouse  their  indignation  to  see  their  curate  establish  illicit  relations 
with  a  woman  and  have  children  by  her.  The  woman  generally  did 
not  losetcaste  on  that  account,  but  often  prided  herself  on  the  relation 
to  the  chief  authority  in  the  village  and  on  the  paternity  of  her  chil- 
dren, who  were  apt  to  be  better  looking,  brighter,  and  more  successful 
than  the  pure  Filipino  children.  Of  course  there  may  have  been 
instances  in  which  a  friar  used  his  autocratic  power  to  establish  a  rela- 
tion of  this  kind  against  the  will  of  the  woman  and  her  relatives,  and 
these  cases  have  lent  themselves  to  deepen  the  colors  of  the  lurid  and 
somewhat  overdrawn  pictures  painted  by  antif  riar  writers,  speakers, 
and  witnesses  concerning  the  abuses  of  the  friars.  But  it  is  conceded 
by  the  most  intelligent  and  observant  of  the  witnesses  against  the 
friars  that  their  immorality,  as  such,  would  not  have  made  them  hate- 
ful to  the  people.  On  the  contrary,  the  Filipino  priests  who  have 
taken  their  places  are  shown  to  be  fully  as  immoral  as  the  friars,  but 
the  people  do  not  feel  any  ill  will  against  them  on  this  account. 
\  We  must  look  elsewhere,  therefore,  for  the  chief  ground  of  the  deep 
feeling  cherished  against  the  friars  by  the  Filipino  people.  It  is  to  be 
found  in  the  fact  that  to  the  Filipino  the  government  in  these  islands 
under  Spain  was  the  government  of  the  friars.  Every  abuse  of  the 
many  which  finally  led  to  the  two  revolutions  of  1896  and  1898  was 
charged  by  the  peo|)lc  to  the  friars.  Whether  they  were  in  fact  to 
blame  is  perhaps  aside  f  I'om  our  purpose,  but  it  can  not  admit  of  contra- 
diction that  the  autocratic  power  which  each  friar  curate  exercised  over 
the  people  and  civil  officials  of  liis  parish  gave  them  a  most  plausible 
ground  for  belief  that  nothing  of  injustice   of  cruelty,  of  oppression, 


40  UKPOKTS    OF    TlIK    (UVIL    (K)VKRNMKNT 

of  narrowino-  restraint  of  liberty  Avas  imposed  on  tlieui  for  wiiich  the 
friar  Avas  not  entirely  responsible.  His  saeredotal  functions  were  not  in 
their  eyes  the  important  ones,  except  as  they  enabled  him  to  clinch  and 
make  more  complete  his  civil  and  political  control.  |i^ The  revolutions 
against  Spain's  sovereig-ntj'  bei^an  as  movements  a^^ainst  the  friars. 
Such  was  the  tenor  of  Rizal's  chief  work,  "Noli  me  tangere."  The 
treaty  of  Biacnabato,  which  ended  the  first  revolution,  is  said  to  have 
contained  the  condition  that  the  friars  should  ho  expelled.  In  the  sec- 
ond revolution,  as  already  said,  at  least  40  friars  were  killed,  and  over 
400  were  imprisoned.  Having  in  view  these  circumstances,  the  state- 
ment of  the  bishops  and  friars  that  the  mass  of  the  people  in  these 
islands,  except  onl}"  a  few  of  the  leading  men  of  each  town  and  the 
native  clergy,  are  friendly  to  them,  can  not  be  accepted  as  accurate. 
All  the  evidence  derived  from  ever}^  source,  but  the  friars  themselves, 
shows  clearly  that  the  feeling  of  hatred  for  the  friars  is  well-nigh  uni- 
versal and  permeates  all  classes. 

In  the  provinces  of  Cavite,  Laguna,  and  Bulacan,  as  well  as  in  the 
countr}^  districts  of  Manila,  the  political  feeling  against  the  friars  has 
in  it  also  an  element  of  agrarianism.^  For  generations  the  friars  have 
been  lords  of  these  immense  manors,  upon  which  since  1880  they  have 
paid  no  taxes,  while  every  "hombre"  living  on  them  paid  his  cedula, 
worked  out  a  road  tax,  and  if  he  were  in  business  of  any  kind  paid  his 
industrial  impost.  It  is  significant  that  it  was  in  Cavite  that  the  two 
revolutions  broke  out,  and  that  each  in  its  beginning  was  merely  a 
protest  against  the  aggressions  of  the  friars. 

In  the  light  of  these  considerations  it  is  not  wonderful  that  the  peo- 
ple should  regard  the  return  of  the  friars  to  their  parishes  as  a  return 
to  the  condition  before  the  revolution.  The  common  people  are  utterly 
unable  to  appreciate  that  under  the  sovereignty  of  the  United  Sttites 
the  position  of  the  friar  as  curate  would  be  difl'erent  from  that  under 
Spain.  This  is  not  a  religious  question,  though  it  concerns  the  selec- 
tion of  religious  ministers  for  religious  communities.  The  Philippine 
people  love  the  Catholic  Church.  The  solemnity  and  grandeur  of  its 
ceremonies  appeal  most  strongly  to  their  religious  motives,  and  it  may 
be  doubted  whether  there  is  aiiy  country  in  the  world  in  which  the  peo- 
ple have  a  more  profound  attachment  for  their  church  than  this  one. 

The  deptn  of  their  feeling  against  the  friars  may  be  measured  by 
the  fact  that  it  exists  against  those  who,  until  two  years  ago,  admin- 
istered the  sacraments  of  the  church  upon  which  they  feel  so  great, 
dependence  and  for  which  they  have  so  profound  a  respect.  The  feeling- 
against  the  friars  is  solely  political.  The  people  w^ould  gladly  receive 
as  ministers  of  the  Roman  Catholic  religion  any  but  those  who  are  to 
them  the  embodiment  of  all  in  the  Spanish  rule  that  was  hateful.  If 
the  friars  return  to  their  parishes,  though  only  under  the  same  police 
protection  which  the  American  Government  is  bound  to  extend  to  any 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  47 

other  Spanish  subjects  commorant  in  these  islands,  the  peojjle  will 
regard  it  as  the  act  of  that  Government.  The}-  have  so  long-  been 
used  to  have  eveiy  phase  of  their  conduct  regulated  b}-  governmental 
order  that  the  coming  again  of  the  friars  will  be  accepted  as  an  execu- 
tive order  to  them  to  receive  the  friars  as  curates,  with  their  old,  all- 
absorbing  functions.  It  is  likely  to  have  the  same  effect  on  them  that 
the  return  of  General  AVeyler  under  an  American  commission  as  gov- 
ernor of  Cuba  would  have  had  on  the  people  of  that  island. 

Those  who  are  charged  with  the  duty  of  pacifying  these  islands 
may,  therefore,  properly  have  the  liveliest  concern  in  a  matter  which, 
though  on  its  surface  only  ecclesiastical,  is,  in  the  most  important  phase 
of  it,  political  and  fraught  with  the  most  critical  consequences  to  the 
peace  and  good  order  of  the  country  in  which  it  is  their  duty  to  set 
up  civil  government.  We  are  convinced  that  a  return  of  the  friars 
to  their  parishes  will  lead  to  lawless  violence  and  murder,  and  that  the 
people  will  charge  the  course  taken  to  the  American  Government, 
thus  turning  against  it  the  resentment  felt  toward  the  friars.  It  is 
to  be  remembered  that  the  Filipinos  who  are  in  sympathy  with  the 
American  cause  in  these  islands  are  as  bitterly  opposed  to  the  friars 
as  the  most  irreconcilable  insurgents,  and  they  look  with  the  greatest 
anxiety  to  the  course  to  be  taken  in  the  matter.  It  is  suggested  that 
the  friars,  if  they  returned,  would  uphold  American  sovereignty  and 
be  efficient  instruments  in  securing  peace  and  good  order,  whereas 
the  native  priests  who  now  fill  the  parishes  are  many  of  them  active 
insurgent  agents,  or  in  strong  sympathy  with  the  cause.  It  is  proba- 
bly true  that  a  considerable  number  of  the  Filipino  priests  are  hostile 
to  American  sovereignty  largely  because  they  fear  that  the  Catholic 
Church  will  deem  it  necessary  on  the  restoration  of  complete  peace 
to  bring  back  the  friars  or  to  elevate  the  moral  tone  of  the  priest- 
hood by  introducing  priests  from  America  or  elsewhere.  But  it  is 
certain  that  the  enmity  among  the  people  against  the  American  Gov- 
ernment caused  by  the  return  of  the  friars  would  far  outweigh  the 
advantage  of  efforts  to  secure  and  preserve  the  allegiance  of  the  peo- 
ple to  American  sovereignty  which  might  be  made  by  priests  who  are 
still  subjects  of  a  monarchy  with  which  the  American  Government  has 
been  lately  at  war,  and  v/ho  have  not  the  slightest  sympathy  with  the 
political  principles  of  civil  liberty  which  the  American  Government 
represents. 

We  have  set  forth  the  facts  upon  this  important  issue,  because  we  do 
not  think  they  ought  to  be,  or  can  be,  ignored.  We  earnestly  hope 
that  those  who  control  the  policy  of  the  Catholic  Church  in  these 
islands  with  the  same  sagacity  and  provision  which  characterizes  all 
its  important  policies,  will  see  that  it  would  be  most  unfortunate  for 
the  Philippine  Islands,  for  the  Catholic  Church,  and  for  the  American 
Government  to  attempt  to  send  back  the  friars,  and  that  some  other 


48  KEPOKTS    OF    TllK    CIVIL    GOVKKNMKNT 

solution  of  the  difficulties  should  be  found.  The  question  for  the 
prelate  and  statesman  is  not  whether  the  bitter  feeling  toward  the 
friars  is  justilied  or  not,  but  whether  it  exists.  It  does  not  seem  to  us, 
therefore,  to  aid  in  reaching"  a  conclusion  to  point  out  tliat  all  the  civ- 
ilization found  in  the  Philippines  is  due  to  the  friars.  Be  it  so. 
Ought  the)'  on  this  account  to  return  to  their  parishes  in  the  face  of  a 
deep,  popular  feeling  against  them?  A  popular  bias  or  prejudice, 
deep  seated  in  an  ignorant  people,  is  not  to  be  disregarded  ]>ecause  it 
can  not  stand  the  test  of  reason  or  evidence.  It  must  be  reckoned 
with.  It  would,  of  course,  be  of  much  assistance  to  the  American 
cause  if  the  Catholic  Church  were  to  send  among  the  people  American 
priests  with  the  love  of  their  country  that  they  have  always  shown, 
and  with  their  clear  understanding  of  civil  liberty  and  conservative 
popular  government;  but  it  is  said  that  such  priests  are  not  available 
for  the  work.  This  is  a  question  of  purely  church  policy  with  which 
we  have  nothing  to  do.  It  is  enough  to  say  that  the  political  question 
will  be  elinunated  if  the  friars  are  not  sent  back. 

The  friars  have  large  property  interests  in  these  islands  which  the 
United  States  Government  is  bound  by  treaty  obligations  and  ])y  the 
law  of  its  being  to  protect.  It  is  natural  and  proper  that  the  friars 
should  feel  a  desire  to  remain  where  so  much  of  their  treasure  is. 
Nearly  all  the  immense  agricultural  holdings  have  been  transferred  by 
the  three  orders — by  the  Dominicans  to  a  gentleman  named  Andrews, 
by  the  Recolletos  to  an  English  corporation,  and  by  the  Augustinians 
to  another  corporation;  but  these  transfers  do  not  seem  to  have  been 
out-and-out  sales,  but  only  a  jiieans  for  managing  the  estates  without 
direct  intervention  of  the  friars,  or  for  selling  the  same  when  a  proper 
price  can  be  secured.  ■  The  friars  seem  to  remain  the  real  owners.  It 
would  avoid  some  very  troublesome  agrarian  disturbances  between  the 
friars  and  their  quondam  tenants  if  the  insular  government  could  ]>uy 
these  large  haciendas  of  the  friars  and  sell  them  out  in  small  holdings 
to  the  present  tenants,  who,  forgiven  for  the  rent  due  during  the  two 
3'ears  of  war,  would  recognize  the  title  of  the  government  without 
demur,  and  gladly  accept  an  opportunity,  by  payment  of  the  price  in 
small  installments,  to  become  absolute  owners  of  that  which  they  and 
their  ancestors  have  so  long  cultivated.  With  the  many  other  calls 
upon  the  insular  treasury,  a  large  financial  operation  like  this  could 
probably  not  be  conducted  to  a  successful  issue  without  the  aid  of  the 
United  States  Government,  either  by  a  direct  loan  or  by  a  guaranty  of 
bonds  to  be  issued  for  the  purpose.  The  bonds  or  loan  could  be  met 
gradually  from  the  revenues  of  the  islands,  while  the  proceeds  of  the 
land,  which  would  sell  readily,  could  bo  used  to  constitute  a  school 
fund.  This  object,  if  declared,  would  make  the  plan  most  popular, 
because  the  desire  for  education  by  the  Filipinos  of  all  tribes  is  very 
strong  and  gives  encouraging  promise  of  the  future  mental  develop- 
ment of  a  now  uneducated  and  ignorant  people. 


OF    THE    PHILIPPINE    ISLANDS,    1900-11)03.  49 

The  provincials  of  the  orders  were  understood  in  their  evidence  to 
intimate  a  willingness  on  the  part  of  the  orders  to  sell  their  agricul- 
tural holdings  if  a  satisfactory  price  should  be  paid.  What  such  a 
price  would  be  we  are  unable,  without  further  investigation,  to  state. 
If  an  agreement  could  not  be  reached,  it  is  probable,  though  upon  this  we 
wish  to  express  no  definite  opinion,  that  there  would  be  ground  in  the 
circumstances  for  a  resort  to  condemnation  proceedings. 

As  the  Catholic  Church  is  and  ought  to  continue  a  prominent  factor 
in  the  life,  peace,  contentment,  and  progress  of  the  Philippine  people, 
it  would  seem  the  wisest  course,  wherever  it  is  possible  to  do  so 
without  infringing  upon  the  principle  that  church  and  State  must  be 
kept  separate,  to  frame  civil  laws  which  shall  accord  with  views  con- 
scientiously entertained  by  Catholics — priests  and  laymen — and  which 
shall  not  deal  unfairl}^  with  a  people  of  a  different  faith.  It  would 
seem  clear  that  any  government  organized  under  the  sovereignty  of 
the  United  States  can  not  devote  public  money  to  the  teaching  of  any 
particular  religion.  -Tt  has  been  suggested,  however,  that  in  any  system 
of  public  education  organized  in  these  islands  it  would  be  proper  to  afford 
to  every  religious  denomination  the  right  to  send  religious  instructors 
to  the  public  schools  to  instruct  the  children  of  parents  who  desire  it 
in  religion  several  times  a  week,  at  times  when  such  instruction  shall 
not  interfere  with  the  regular  curriculum.  This  is  what  is  understood 
to  be  the  Faribault  plan.  It  is  not  certain  that  this  would  meet  com- 
pletely the  views  of  the  Catholic  hierarchy,  but  it  is  likely  that  it 
would  avoid  that  active  hostility  to  a  public-school  system  which  might 
be  a  formidable  obstacle  in  spreading  education  among  these  Catholic 
people.  The  Commission  has  reached  no  definite  conclusion  upon  the 
matter,  but  only  states  the  question  as  one  calling  for  solution  in  the 
not  far  distant  future. 

PUBLIC    LANDS. 

The  total  amount  of  land  in  the  Philippine  Islands  is  approximately 
29,694,600  hectares,  or  73,345,415  acres.  Of  this  amount  it  is  esti- 
mated that  about  2,000,000  hectares,  or  about  4,040,000  acres,  are 
owned  by  individuals,  leaving  in  public  lands  27,694,500  hectares,  or 
68,405,415  acres.  The  land  has  not  been  surveyed,  and  these  are 
merely  estimates.  Of  the  public  lands,  there  are  about  twice  or  three 
times  as  much  forest  land  as  there  is  waste  land.  The  land  is  most 
fertile  and  for  the  greater  part  naturally  irrigated.  There  was  a  very 
great  demand  for  this  land,  but  owing  to  the  irregularities,  frauds, 
and  delays  in  the  Spanish  system,  the  natives  generally  abandoned 
efforts  to  secure  a  good  title  and  contented  themselves  with  remaining 
on  the  land  as  simple  squatters,  subject  to  eviction  by  the  State.  In 
1894  the  Minister  for  the  Colonies  reported  to  the  Queen  of  Spain 
that  there  were  about  200,000  squatters  on  the  public  lauds,  but  it  is 

23181—04 1 


50  KKl'OUTS    OK    TIIK    CIVIL    (iOVERNMENT  ' 

thought  bj'  employees  in  the  forestry  burcjiu,  who  huxc.  boeii  in  a 
position  to  know,  that  there  are  fully  double  that  numl>er.  In  the 
various  islands  of  the  Archipelago  the  proportion  of  private  land  to 
public  land  is  about  as  stated  above,  except  in  Mindanao,  Mindoro, 
and  Palawan,  where  the  proportion  of  public  land  is  far  greater. 

The  insufficient  character  of  the  public-land  system  under  the  Spanish 
Government  in  these  islands  makes  it  unnecessary  to  refer  in  detail  to 
what  that  system  was.  It  is  sufficient  to  say  that  there  were  no  sur- 
veys of  any  importance  whatever,  and  that  the  first  thing  to  be  done 
in  establishing  a  public-land  system  is  to  have  the  public  lands  accu- 
rately surveyed.  This  is  a  work  of  years,  but  it  is  thought  that  a 
system  of  the  laws  of  public  lands  can  be  inaugurated  without  waiting 
until  the  survey  is  completed.  The  Commission  has  received  a  suffi- 
cient luimber  of  appliciitions  for  the  purchase  of  public  land  to  know 
/that  large  amounts  of>American  capital  are  only  awaiting  the  oppor- 
tunit}^  to  invest  in  the  rich  agricultural  field  which  may  here  be  devel- 
oped. In  view  of  the  decision  that  the  military  government  has  no 
power  to  part  with  the  public  land  belonging  to  the  United  States,  and 
that  that  power  rests  alone  in  Congress,  it  becomes  very  essential,  to 
assist  the  development  of  these  islands  and  their  prosperity,  that  Con- 
gressional authority  be  vested  in  the  government  of  the  islands  to 
adopt  a  proper  public-land  system,  and  to  sell  the  land  upon  proper 
terms.  There  should,  of  course,  be  restrictions  preventing  the  acqui- 
sition of  too  large  quantities  by  any  individual  or  corporation,  but 
those  restrictions  should  ydnly  be  imposed  after  giving  due  weight  to 
the  circumstances  that  dapital  can  not  be  secured  for  the  development 
of  the  islands  unless  the  investment  may  be  sufficiently  great  to  justify 
the  expenditure  of  large  amounts  for  expensive  machinerv  and  equip- 
ment. Especially  is  this  true  in  the  cultivation  of  sugar  land.  The 
Commission,  of  course,  is  not  restricted  from  instituting  a  survey,  and 
has  had  some  communication  with  the  head  of  the  Coast  and  Geodetic 
Survey  in  regard  to  the  matter.  It  proposes  in  the  near  future  to 
inaugurate  such  a  system. 

CrVIL    GOVERNMENT. 

The  restricted  powers  of  a  military  government  referred  to  in  dis- 
cussing the  public  lands  are  also  painfully  apparent  in  respect  to 
mining  claims  and  the  organization  of  railroad,  banking,  and  other  cor- 
porations, and  the  granting  of  franchises  generally.  It  is  necessary 
that  there  be  some  body  or  officer  vested  with  legislative  authority  to 
pass  laws  which  shall  afford  opportunity  to  capital  to  make  investment 
here.  This  is  the  true  and  most  lasting  method  of  pacification.  Now 
the  only  corporations  here  are  of  Spanish  or  English  origin,  with  but 
limited   concessions,   and  American   capital   finds   itself    completely 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  51 

obstructed.  Such  difficulties  would  all  be  removed  by  the  passage  of 
the  Spooner  bill,  now  pending  in  both  Houses. 

The  far-reaching  effect  upon  the  feeling  of  the  people  of  changing 
the  military  government  to  one  purely  civil,  with  the  army  as  merely 
auxiliary  to  the  administration  of  civil  law,  can  not  be  too  strongly 
emphasized.  Military  methods  in  administering  quasi-civil  govern- 
ment, however  successful  in  securing  efficiency  and  substantial  justice, 
are  necessarily  abrupt  and  in  appearance  arbitrary,  even  when  they 
are  those  of  the  Army  of  a  Republic;  and  until  a  civil  government  is 
established  here,  it  will  be  impossible  for  the  people  of  the  Philippine 
Islands  to  realize  the  full  measure  of  the  difference  between  a  govern- 
ment under  American  sovereignty  and  one  under  that  of  Spain. 

The  relation  between  the  post-office  department  in  the  Philippines 
and  the  insular  government  has  not  been  as  clearly  defined  as  it  might 
be.  At  present  the  director  of  posts  considers  that  by  virtue  of  the 
orders  of  the  War  Department  and  the  Post-Office  Department  he  has 
the  right  to  appoint  employees  in  the  department  and  to  fix  their  sala- 
ries, and  that  the  Commission  has  no  function  except  to  make  the 
appropriations  out  of  the  Treasury  to  meet  the  obligations  which  he 
thus  incurs.  During  the  incumbency  of  the  present  director  of  posts, 
it  must  be  said  that  his  efficient  administration  and  his  anxious  desire 
to  cooperate  in  every  way  with  the  government  has  relieved  the 
doubtful  questions  of  much  embarrassment;  but,  in  the  opinion  of  the 
Commission,  it  would  be  much  wiser  either  to  give  to  the  insular  gov- 
ernment complete  control  over  the  post-office  department  or  to  trans- 
fer it  to  the  United  States  Government  for  its  sole  management  and 
support,  as  has  been  done  in  Porto  Rico. 

Assuming  that  it  had  legislative  and  executive  control  of  appoint- 
ments in  the  post-office  department,  the  Commission  brought  it  within 
the  operation  of  the  civil-service  act,  and  it  now  recommends  that  the 
selection  of  post-office  employees  be  made  subject  to  that  act,  the 
importance  of  which  has  already  been  discussed. 

The  Commission  was  requested  to  appropriate  money  for  the  con- 
struction of  a  post-office  in  the  city  of  Manila  and  to  devote  certain 
public  land  to  that  purpose.  It  was  entirely  willing  to  make  the 
appropriation  both  of  the  land  and  the  money,  but  declined  to  do  so 
until  it  should  be  definitely  settled  whether  it  was  to  assume  control  of 
the  post-office  department  and  pay  the  expenses  thereof  or  whether 
the  control  and  cost  were  to  be  assumed  by  the  United  States 
Government. 

A  similar  question  has  arisen  in  regard  to  the  Marine-Hospital  Serv- 
ice. This,  it  seems  to  us,  ought  to  be  under  the  insular  government, 
and  the  officers  in  charge  should  be  subject  to  orders  by  the  insular 
government.  Now,  the  anomalous  condition  is  that  the  insular  gov- 
ernment has  been  obliged  to  appropriate  |30U,<)00  to  uiake  improve- 


52  UKl'OKTS    OK    THE    CIVIL    GOVERNMENT 

nieiits  for  the  hospital  service  Avithout  exercising-  the  slig-htest  control 
over  the  expenditure.  The  hospital  service  is  efficient  doubtless,  but 
occasion  niiyht  arise  when  it  would  be  exceedingly  embarrassing  to 
have  a  branch  of  the  government  here  entirely  independent  of  the 
control  bj'^  the  chief  executive  and  the  legislature.  Certainly  there  is 
nothing  about  the  quarantine  service  that  requires  that  it  should  be 
administered  from  the  Treasury  Department,  10,000  miles  distant, 
rather  than  by  the  insular  government,  for  even  in  the  States  of  the 
United  States  the  quarantine  service,  l)y  inaction  of  Congress,  is 
usually  permitted  to  be  a  part  of  the  local  police  government  of  the 
the  States  instead  of  being  solely  a  Federal  function. 

REVENUES,    EXPENDITURES,    AND    SURPLUS. 

The  revenues  of  the  islands  have  increased  so  remarkably  under  the 
military  government  that  with  the  result  of  the  election  and  the 
assurance  which  it  gives  of  the  continuance  of  the  present  policy  it 
may  be  reasonably  prophesied  that  the  income  for  each  month  will 
exceed  $2,000,000,  Mexican.  For  the  month  of  October  it  exceeded 
this  amount  by  $200,000,  Mexican.  During  the  present  month  and  the 
two  following  months  it  will  probably  fall  below  the  two  million 
maisk  by  two  or  three  hundred  thousand  dollars,  but  in  the  months 
thereafter  there  is  the  strongest  probability  of  an  increase.  The 
present  ordinary  expenditures  of  the  government  aggregate  more  than 
11,100,000,  Mexican.  This  amount  will  increase  in  the  future,  as  the 
civil  service  is  enlarged  and  as  the  military  officers  and  soldiers  who 
are  now  detailed  for  the  discharge  of  civil  duties  shall  be  supplanted 
by  civilians  whose  salaries  must  be  paid  out  of  the  public  funds.  The 
Commission  has  made  one  krge  appropriation  of  11,000,000,  gold,  by 
your  direction,  for  the  building  of  roads  under  the  supervision  of  the 
military  governor,  and  another  appropriation  of  $1,000,000,  gold,  for 
carrying  on  the  improvements  of  the  Manila  Harbor  works.  The 
improvement  of  the  harbor  can  probably  not  be  completed  without 
the  expenditure  of  at  least  a  million  and  a  half  «iore,  gold.  The 
appropriation  which  the  general  superintendent  of  public  instruction 
has  recommended  for  school  purposes  for  the  coming  year  from  the 
insular  treasury  will  amount  to  more  than  $1,500,000  in  gold. 

There  is  now  on  hand  in  the  Treasury,  not  covered  by  appropria- 
tions, $2,500,000  in  gold,  and  this  sum  will  increase  for  the  present  at 
the  rate  of  not  less  than  $300,000  a  month,  if  only  the  ordinary  appro- 
priations are  made. 

One  very  serious  question  which  we  desire  to  present  to  you,  and 
upon  which  we  have  already  had  some  correspondence,  is  whether  the 
policy  should  not  now  be  adopted  of  spending  nothing  from  the  pub- 
lic civil  funds  for  purely  military  or  naval  purposes.  The  amount 
spent  for  purely  military  and  naval  pui'poses  in  these  islands  from  the 


OF    THE    PHILIPPINE    ISLANDS,    1900-190.3.  53 

1st  of  July  to  the  loth  of  September  is  approximate!}'  $800^000  Mex- 
ican, or  about  $160,000  gold,  a  month.  In  view  of  the  very  great  bur- 
den which  will  be  placed  upon  the  public  civil  funds  the  moment  a  satis- 
factory school  system  is  inaugurated  and  the  needs  for  internal  improve- 
ments are  supplied,  the  revenue,  unless  materially  increased,  will  be 
insufficient.  We  think  it  a  much  better  policy  that  everything  that 
comes  from  the  islands  to  the  public  civil  funds  should  l)e  expended  for 
purely  civil  purposes.  In  this  view  we  are  glad  to  be  able  to  say  that 
Maj.  Gen.  Arthur  Mac  Arthur,  the  military  governor,  fully  concurs. 

MUNICIPAL   GOVERNMENT. 

In  obedience  to  the  instructions  of  the  President,  the  Commission 
took  up  the  matter  of  the  establishment  of  municipal  governments 
very  shortly  after  its  arrival  at  Manila.  It  was  learned  that  General 
Order,  No.  40,  which  provided  a  much  more  elaborate  form  of 
municipal  government  than  that  prescribed  in  General  Order,  No.  43, 
had  not  at  that  time  been  put  into  operation,  although  a  number  of 
towns  had  applied  for  organization  under  it.  Their  requests  had 
been  granted  b}'  the  military  governor,  and  the  necessary  preliminary 
steps  toward  organization  were  being  taken. 

The  order  had  been  translated  into  Spanish.  Tagalog,  Visayan,  and 
other  native  dialects,  had  been  widely  circulated  among  the  inhabitants 
of  the  Archipelago,  and  the  leading  men  in  many  of  the  more  important 
towns  had  been  requested  to  familiarize  themselves  with  it.  It  was 
deemed  that  criticisms  of  the  provisions  of  this  order  from  those  who 
would  be  called  upon  to  cany  them  into  effect,  or  to  live  subject  to  them, 
would  be  helpful,  and  a  number  of  conferences  were  according!}^  held 
with  Filipinos  from  different  parts  of  the  Archipelago,  at  which  they 
were  invited  to  criticise  it  freely  and  to  suggest  any  changes  which 
they  deemed  desirable.  In  this  way  a  considerable  amount  of  valuable 
information  was  gained,  and  it  soon  became  evident  that  while  many 
of  the  provisions  of  General  Order  No.  40  could  be  advantageously 
incorporated  into  the  new  code,  important  changes,  as  well  as  exten- 
sive additions,  would  be  necessary. 

At  this  time  conditions  were  such  as  to  lead  to  the  belief  that  a 
large  number  of  towns  would  be  read}^  for  organization  when  the  Com- 
mission began  the  exercise  of  its  functions  on  the  1st  of  September, 
and  in  view  of  the  difficulty  and  confusion  likely  to  result  from  the 
putting  into  effect  of  one  form  of  municipal  government  and  the 
replacing  of  it  a  little  later  by  another,  it  was  thought  best  to  suggest 
on  July  26,  for  the  consideration  of  the  military  governor,  the  question 
whether  it  might  not  be  well  to  suspend  the  carrying  into  effect  of 
General  Order  No.  40.  He  replied  that  all  new  applications  for  organ- 
ization under  this  order  would  ])e  refused,  but  that,  where  permission 
to  organize  had  already  been  granted,  he  believed  that  the  difficulties 


54  REl'OKTS    OF    THE    CIVIL    OOVERNMENT 

arising  from  a  withdrawal  of  that  permission  would  bo  greater  than 
those  involved  in  the  change  from  one  form  of  municipal  organization 
to  the  other. 

After  hearing  all  who  expressed  a  desire  to  be  heard  on  the  subject, 
and  summoning  numerous  witnesses,  the  Commission  drafted  a  new 
municipal  law,  based  on  General  Order  No.  -±0.  For  the  reason  here- 
inbefore stated,  this  law  has  not  yet  been  enacted.  Meanwhile  the 
Commission  is  getting  the  benefit  of  the  result  of*  practical  experience 
through  the  actual  workings  of  General  Order  No.  40,  under  which, 
according  to  reports  furnished  the  Commission  by  the  militar}^  gov- 
ernor, fifty-five  towns  have  been  organized.  It  is  proposed  to  under- 
take the  active  work  of  organizing  municipalities  under  the  new  law 
at  an  early  date. 

While  it  is  unnecessary  to  discuss  in  detail  the  new  measure,  the 
text  of  which  has  been  forwarded  to  you,  explanation  of  certain  of  its 
provisions  may  be  useful. 

The  "pueblos"  of  these  islands  sometimes  include  a  hundred  or 
more  square  miles.  They  are  divided  into  so-called  barrios,  or  wards, 
which  are  often  ver}'  numerous  and  widely  separated.  In  order  that 
the  interests  of  the  inhabitants  of  each  ward  may  be  represented  in 
the  council,  on  the  one  hand,  and  that  that  body  may  not  become  so 
numerous  as  to  be  unwieldy,  on  the  other,  it  is  provided  that  the 
councilors  shall  be  few  in  number  (18  to  8,  according  to  the  number 
of  inhabitants)  and  shall  be  elected  at  large;  that  where  the  wards  are 
more  numerous  than  are  the  councilors,  the  wards  shall  be  grouped 
into  districts,  and  that  one  councilor  shall  be  in  charge  of  each  ward 
or  district,  with  power  to  appoint  a  representative  from  among  the 
inhabitants  of  every  ward  thus  assigned  to  him,  so  that  he  may  the 
more  readily  keep  in  touch  with  conditions  in  that  portion  of  the 
township  which  it  is  his  duty  to  supervise  and  represent. 

General  Order  No.  40  gave  the  suffrage  to  all  persons  23  or  more 
years  of  age  who  had  held  municipal  office  under  Spanish  sovereignty, 
or  who  annually  paid  30  pesos  or  more  of  the  established  taxes,  or 
who  could  speak,  read,  and  write  English  or  Spanish.  The  new  law 
further  extends  it  to  all  owners  of  real  property  to  the  value  of  500 
pesos,  so  that  only  those  are  excluded  who  can  not  read,  write,  and 
speak  English  or  Spanish,  or  who  do  not  pay  30  pesos  of  taxes,  or 
who  do  not  own  500  pesos'  worth  of  real  property,  or  who  have  never 
held  municipal  office.  The  Commission  has  every  reason  to  believe 
that  this  liberal  provision  will  prove  entirely  satisfactory  to  the 
people. 

General  Order  No.  40  further  restricted  the  suffrage  by  providing 
for  the  disqualification  of  defendants  in  criminal  cases  pending  trial; 
of  those  who  had  been  gubernativcly  corrected  three  or  more  times 
for  misconduct  or  who  have  been  subjected  to  corporal  punishment  or 


OF    THE    PHILIPPINE    ISLANDS,    1000-1903.  55 

disqualification;  of  those  who  were  subject  to  civil  interdiction  or  the 
vigilance  of  the  authorities  through  the  sentence  of  a  court  of  justice; 
of  debtors  to  any  treasury  or  municipal  fund;  of  those  who  had  con- 
tracts with  the  municipal  council  to  be  finished  within  the  municipal 
term;  and  of  those  who  had  a  suit  with  the  municipality  to  which  they 
belonged,  as  well  as  of  insane  or  feeble-minded  persons.  Most  of  these 
restrictions  were  deemed  unwise,  and  under  the  new  law  only  those 
will  be  disqualified  who  are  delinquent  in  the  payment  of  public  taxes 
assessed  since  August  13, 1898,  or  who  have  been  deprived  of  the  right 
to  vote  by  the  sentence  of  a  court  of  competent  jurisdiction  since 
August  13,  1898,  and  insane  or  feeble-minded  persons. 

The  subject  of  taxation  has  been  made  the  object  of  especially  care- 
ful attention.  The  effect  of  the  old  Spanish  system  was  to  throw 
practically  the  whole  burden  on  those  who  could  least  afford  to  bear 
it.  The  poor  paid  the  taxes,  and  the  rich,  in  many  instances,  went 
free,  or  nearly  so,  unless  they  were  unfortunate  enough  to  hold  office, 
and  thus  incur  responsibility  for  the  taxes  of  others  which  they  failed 
to  collect.  There  was  a  considerable  number  of  special  taxes,  many 
of  w^hich  were  irritating  and  offensive  to  the  people,  and  yielded,  at  the 
best,  a  pitifully  small  revenue. 

The  continuation  of  some  of  these  objectionable  taxes  was  provided 
for  by  General  Order  No.  40,  while,  in  case  the  revenue  resulting 
should  not  prove  sufficient  for  the  necessities  of  the  municipality,  the 
council  was  authorized  to  make  ' '  a  general  division  among  the  resi- 
dents and  property  owners,  in  proportion  to  the  means  and  resources 
of  each,  to  cover  the  expenses  of  the  ser\dce  of  the  municipality,  or  of 
such  part  thereof  as  is  unprovided  for  by  receipts  from  the  preceding 
sources."  This  last  provision  was  deemed  by  the  commission  highly 
dangerous  and  has  been  abolished. 

In  dealing  with  the  question  of  taxation  it  has  been  our  purpose, 
first,  to  do  away  with  all  taxes  which,  through  irritating  those  from 
whom  they  were  collected  or  through  the  small  amount  of  resulting 
revenue,  were  manifestly  objectionable;  second,  to  remove  the 
so-called  industrial  taxes,  except  where  levied  on  industries  requiring 
police  supervision;  third,  to  abolish  special  taxes,  such  as  the  tax  for 
lighting  and  cleaning  the  nuniicipality  and  the  tax  for  the  repair  of 
i-oads  and  streets;  fourth,  to  provide  abundant  funds  for  the  legiti- 
mate needs  of  the  township  by  a  system  which  should  adjust  the  bur- 
den of  contribution  with  some  reference  to  the  resources  of  those 
called  upon  to  bear  it.  To  this  end  provision  has  been  made  for  a 
moderate  tax  on  land  and  improvements  thereon. 

It  is  reasonably  certain  that  at  the  outset  there  will  be  more  or  less 
opposition  to  this  tax.  This  opposition  will  come  from  the  rich,  who 
have  thus  far  escaped  their  fair  share  of  the  burden  of  taxation  and 
who  will  naturally  be  more  or  less  unwilling  to  assume  it.     It  is 


56  REPORTS    OF    THE    CIVIL    GOVERNMENT 

believed,  however,  that  this  opposition  will  bo  transient  and  will  dis- 
appear as  the  people  come  to  realize  that  the  payment  of  taxes  results 
in  direct  benefit  to  the  communities  in  which  they  live  and  to  them- 
selves individually. 

The  exact  rate  of  taxation  on  land  and  improvements  is  left  to  the 
several  municipal  councils  within  certain  limits.  They  may  reduce  it 
to  one-fourth  of  1  per  cent  of  the  assessed  valuation  or  raise  it  to  one- 
half  of  1  per  cent;  but  in  any  event  they  must  spend  the  amount 
accruing  from  a  tax  of  at  least  one-fourth  of  1  per  cent  on  free  public 
schools.  Education  is  the  crying  need  of  the  inhabitants  in  this  coun- 
try, and  it  is  hoped  and  believed  that  the  funds  resulting  from  the 
land  tax  will  be  sufficient  to  enable  us  to  establish  an  adequate  primary 
school  system.  Careful  and,  it  is  believed,  just  provisions  have  been 
made  for  the  determination  of  values  and  for  the  protection  of  the 
rights  of  property  owners. 

In  the  matter  of  collection  of  revenues  a  complete  innovation  has 
been  introduced,  which,  it  is  believed,  will  be  productive  of  satisfac- 
tory^ results.  It  is  intended  to  create  for  the  islands  a  centralized  sys- 
tem for  the  collection  and  disbursement  of  revenues,  the  head  ofiicer 
of  which  shall  be  the  insular  treasurer  of  Manila.  It  is  proposed  to 
establish  subordinate  offices  in  the  several  departments,  and  others 
subordinate  in  turn  to  the  several  departmental  offices  in  the  various 
provinces.  All  revenues  within  any  given  province,  whether  for  the 
municipal,  provincial,  departmental,  or  insular  treasuries,  will  be  col- 
lected by  deputies  of  the  provincial  treasurer,  who  will  immediately 
turn  over  to  the  several  municipalities  all  funds  collected  for  them. 
It  is  believed  that  by  this  means  a  much  higher  degree  of  honesty  and 
efficiency  can  be  secured  than  would  be  the  case  were  the  collectors 
appointed  by  the  municipalities  or  chosen  by  suffrage,  while  it  will  be 
a  great  convenience  to  the  taxpayer  to  be  able  to  meet  his  obligations 
to  all  departments  of  the  government  at  one  time,  and  thus  escape 
annoyance  at  the  hands  of  a  multiplicit}'  of  officials,  each  of  whom  is 
collecting  revenue  for  a  diflE'erent  end.  Furthermore,  the  provincial 
treasurer  will  know  the  exact  amount  paid  in  to  each  municipal  treas- 
ury, and  will  thus  have  a  valuable  check  on  the  finances  of  every  town 
in  his  province. 

Corruption  in  the  management  of  public  funds  has  been  and  still  is 
one  of  the  crying  evils  in  this  country,  and  it  is  believed  that  if  an 
honest  and  efficient  man  is  put  at  the  head  of  the  financial  system  of  a 
province  and  is  given  large  control  over  the  deputies  who  serve  under 
him  a  much-needed  lesson  can  be  taught  to  the  municipal  officials. 

In  order  to  meet  the  situation  presented  by  the  fact  that  a  number 
of  the  pueblos  have  not  as  yet  been  organized  since  the  American 
occupation,  while  some  250  others  are  organized  under  the  compara- 
tively shiiple  form  of  government  provided  by  General  Order  JSos.  4:3 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  57 

and  55,  under  the  much  more  complicated  form  provided  by  General 
Order  No.  40,  on  which  the  new  law  is  based,  the  course  of  procedure 
which  must  be  followed  in  order  to  bring  these  various  towns  under 
the  provisions  of  the  new  law  has  been  prescribed  in  detail  and  every 
effort  has  been  made  to  provide  against  unnecessary  friction  in  carry- 
ing out  the  change. 

In  view  of  the  disturbed  conditions  which  still  prevail  in  some  parts 
of  the  Archipelago,  it  has  been  provided  that  the  military  governor 
should  be  given  control  of  the  appointment  and  arming  of  the  muni- 
cipal police,  and  that  in  all  provinces  where  a  civil  provincial  govern- 
ment has  not  been  established  by  the  Commission  the  duties  of  the 
provincial  governor,  provincial  treasurer,  and  provincial  "fiscal" 
(prosecuting  attorney)  shall  be  performed  by  military  officers  assigned 
b}^  the  militar}^  governor  for  these  purposes.  It  has  been  further  pro- 
vided that  in  these  provinces  the  military  governor  shall  have  power, 
through  such  subordinates  as  he  may  designate  for  the  purpose,  to 
inspect  and  investigate  at  anj^  time  all  the  official  books  and  records  of 
the  several  municipalities,  and  to  summarily  suspend  any  n  icij)al 
officer  for  inefficiency,  misconduct,  or  disloyalty  to  the  United  States. 
If,  upon  investigation,  it  shall  prove  that  the  suspended  officer  is 
guilty,  the  military  governor  has  power  to  remove  him  and  to  appoint 
his  successor  should  he  deem  such  a  course  necessary  in  the  interest 
of  public  safety. 

It  is  thought  that  where  the  necessity  still  exists  for  active  inter- 
vention on  the  part  of  the  military  governor  it  will  ordinarily  be 
desirable  to  allow  the  towns  to  retain  their  existing  organization  until 
such  time  as  conditions  shall  improve;  but  should  it  prove  necessary 
or  desirable  in  individual  instances  to  put  the  new  law  into  operation 
in  such  provinces,  it  is  felt  that  the  above  provisions  will  give  to  the 
military  governor  ample  power  to  deal  with  any  situation  which  can 
arise,  and  he  has  expressed  his  satisfaction  with  them. 

There  are  at  the  present  time  a  considerable  number  of  provinces 
which,  in  the  judgment  of  the  Commission,  are  ready  for  a  provincial 
civil  government.  It  is  believed  that  in  the  majority  of  cases  it  will 
be  possible  to  organize  all  the  municipalities  of  a  province,  creating  at 
■  the  same  time  a  civil  provincial  government.  So  soon  as  civil  govern- 
ment is  established  in  any  province,  power  to  remove  officials  for  ineffi- 
ciency, misconduct,  or  disloyalty,  and,  should  public  safety  demand 
it,  to  fill  the  offices  thus  made  vacant,  is  vested  in  the  civil  authorities. 

The  law  does  not  apply  to  the  city  of  Manila  or  to  the  settlements 
of  non-Christain  tribes,  because  it  is  believed  that  in  both  cases  special 
conditions  require  special  legislation. 

The  question  as  to  the  best  methods  of  dealing  with  the  non-Christian 
tribes  is  one  of  no  little  complexity.  The  number  of  these  tribes  is 
greatly  in  excess  of  the  number  of  civilized  tribes,  although  the  total 


58  REPOKTS    OI*     THE    CIVIL    OOVF.RNMENT 

numlior  of  Mohammedans  and  paefan.s  is  much  loss  than  the  numl)erof 
christianized  natives.  Still,  the  non-Christian  tribes  are  very  far  from 
forming  an  insignilieant  element  of  the  population.  They  differ  from 
each  other  widely,  both  in  their  present  social,  moral,  and  intellectual 
state  and  in  the  readiness  with  which  they  adapt  themselves  to  the 
demands  of  modern  ciAnlization. 

The  necessity  of  meeting  this  problem  has  been  brought  home  to 
the  Commission  b}^  conditions  in  the  province  of  Benguet.  The  Igor- 
rotes  who  inhabit  this  province  are  a  pacific,  industrious,  and  rela- 
tively honest  and  truthful  people,  who  have  never  taken  any  part  in 
the  insurrection,  and  who  have  rendered  our  forces  valuable  service 
b}'^  furnishing  them  with  information,  serving  as  carriers,  and  aiding 
them  in  other  waj^s.  They  certainly  deserve  well  of  us.  They  are, 
however,  illiterate  pagans,  and  it  is  stated  on  good  authority  that  there 
are  not  three  Igorrotes  in  the  province  who  can  read  or  write.  They 
are  uncomplaining,  and  when  wronged  lly  to  the  mountain  fastnesses 
in  the  center  of  the  island  instead  of  seeking  redress. 

The  wonderful  climate  of  their  province,  as  well  as  its  great  min- 
eral wealth,  make  it  well-nigh  certain  that  there  will  be  in  the  near 
future  a  large  influx  of  Americans  and  Europeans.  The  situation  is 
further  complicated  by  the  fact  that  there  are  living  among  the  Igor- 
rotes  a  considerable  number  of  civilized  Ilocanos,  who  display  a  tend- 
ency to  take  undue  advantage  of  their  less  civilized  neighbors  when 
opportunity  offers.  It  is  necessary,  on  the  one  hand,  that  the  present 
inhabitants  should  be  granted  the  protection  which  they  have  well 
earned,  and  on  the  other,  that  they  should  be  gradually  accustomed 
to  the  ways  of  civilized  people,  which  it  is  believed  they  will  readily 
adopt.  They  should  also  be  given  an  opportunity  for  elementary 
instruction,  which  they  earnestly  desire  if  they  can  have  it  without 
being  forced  to  change  their  religious  beliefs. 

The  conditions  in  Benguet  may  bo  taken  as  fairly  typical  of  those 
which  prevail  in  many  other  provinces,  populated  in  whole  or  in  part 
by  harmless  and  amiable,  but  ignorant  and  superstitious,  wild  tribes. 
The  Commission  has  already  passed  an  act  for  the  establishment  of 
township  governments  in  this  province,  and  it  is  believed  that  this 
measure  will  serve  as  a  model  for  other  acts  necessitated  by  similar 
conditions  in  other  provinces.  The  division  of  the  province  into  town- 
ships and  wards  is  provided  for.  The  government  of  each  township 
is  nominally  vested  in  a  president  and  council,  the  latter  composed  of 
one  representative  from  each  ward  of  the  township.  The  president 
and  vice-president  are  chosen  at  large  by  a  viva  voce  vote  of  the  male 
residents  of  the  township  18  or  more  years  of  age,  and  the  councilors 
are  similarly  chosen  by  the  residents  of  the  several  barrios. 

The  difficulties  arising  from  the  complete  illiteracy  of  the  people  are 
met  by  providing  for  the  appointment  of  a  secretary  for  each  town, 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  59 

who  shall  speak  and  write  Ilocano,  which  the  Igorrotes  understand, 
and  English  or  Spanish.  He  is  made  the  means  of  communication 
between  the  people  and  the  provincial  governor,  makes  and  keeps  all 
town  records,  and  does  all  clerical  work. 

The  president  is  the  chief  executive  of  the  township  and  its  treasurer 
as  well.  He  is  also  the  presiding  officer  of  a  court  consisting  of  him- 
self and  two  councilors  chosen  b}^  the  council  to  act  with  him.  This 
court  has  power  to  hear  and  adjudge  violations  of  local  ordinances.  It 
also  has  jurisdiction  in  civil  cases  involving  not  more  than  $200,  pro- 
vided the  parties  to  the  suit  make  written  application  for  a  trial  of 
their  case  and  agree  in  writing  to  abide  by  the  finding. 

The  president  has  power  to  direct  the  making  of  arrests  in  criminal 
cases  for  misdemeanors  not  within  the  jurisdiction  of  the  court,  to 
carry  out  a  preliminary  investigation  into  the  facts,  and  if  the  guilt  of 
the  prisoner  appears  probable,  to  send  him,  together  with  the  findings 
in  the  case,  to  the  governor  of  the  province.  One  police  officer  (con- 
stable) is  allowed  to  each  township,  but  it  is  provided  that  the  question 
of  any  additional  police  force  shall  be  left  to  the  military  governor,  as 
well  as  the  question  of  what  arms  shall  be  allowed  to  the  police  and  to 
other  township  officers  or  residents.  Rules  are  laid  down  for  the 
organization  and  work  of  the  council,  which  is  given  considerable 
power,  but  its  acts  are  made  subject  to  the  approval  of  the  provincial 
governor,  and  it  is  further  provided  that,  should  any  given  council 
prove  unfit  to  exercise  the  power  given  it,  or  fail  to  do  so,  the  pro- 
vincial governor  may  adopt  suitable  measures  for  the  carrying  out  of 
the  provisions  of  the  law. 

It  is  believed  that,  by  encouraging  the  municipal  councils  to  attempt 
to  make  ordinances  and  then  giving  them  the  benefit  of  the  criticism 
and  suggestion  of  the  provincial  governor  with  reference  to  such 
attempts,  they  may  be  gradually  taught  much  needed  lessons  in  self- 
government,  while  sufficient  power  is  given  to  the  governor  to  enable 
him  to  nullify  harmful  measures  and  to  take  the  initiative  when  a 
council  fails  to  act. 

The  Igorrotes  are  tillers  of  the  soil,  and  a  few  of  the  inhabitants  of 
each  township  have  acquired  very  considerable  wealth.  It  is  provided 
that  they  shall  be  allowed  to  declare  the  value  of  their  property  before 
the  presidents  of  the  several  townships  and  that  their  declaration  shall 
})e  accepted  as  true,  unless  called  into  question  by  the  provincial 
inspector  or  by  some  resident  of  the  province,  in  which  case  the  matter 
shall  be  determined  by  a  board  consisting  of  the  provincial  governor, 
the  provincial  secretary,  and  the  president  of  the  township.  Those 
who  own  property  to  the  value  of  200  pesos  or  more  are  taxed  annually 
one-half  of  1  per  cent  of  its  estimated  value.  Males  18  or  more  years 
of  age  whose  total  property  is  worth  less  than  200  pesos  are  excused 
from  the  payment  of  a  property  tax,  and  in  lieu  thereof  pay  u  liat 


60  KEVOUTt^    OF    THE    riVTL    (JOVERTSMENT 

annual  tax  of  1  peso  each.  All  the  funds  thus  raised  go  into  the 
township  treasury,  and  are  expended  bj"^  the  president  for  the  benefit 
of  the  township,  on  order  of  the  council,  subject  to  the  approval  of 
the  provincial  governor. 

As  a  check  upon  the  necessaril}^  wide  powers  given  to  the  provin- 
cial governor,  it  is  provided  that  a  popular  representative  shall  be 
annually  elected,  whose  privilege  and  duty  it  shall  he  to  communicate 
directly  with  the  chief  executive  of  the  insular  government,  should 
the  provincial  governor  abuse  his  powers. 

It  is  hoped  and  believed  that  under  this  system  the  governor  of  the 
province  of  Benguet  will  be  able  rapidly  to  improve  the  condition  of 
its  inhabitants.  In  the  past  thej^  were  in  many  instances  practically 
enslaved  by  the  Spaniards  as  "polistas"  and  were  forced  to  render 
involuntary  services,  for  which  they  received  no  compensation.  It 
has  been  learned  that,  even  at  the  present  time,  the  municipal  author- 
ities in  some  of  the  Ilocano  towns,  in  the  plains  below,  lay  hold  of 
every  Igorrote  who  passes  through  and  compel  him  either  to  carry  a 
heav3^  burden  into  the  mountains  or  to  pay  twenty  cents  (a  day's  wages) 
for  immunity;  while  formerly  not  only  were  the  Igorrotes  compelled 
to  work  on  the  roads  without  pay,  but  they  were  even  forced  to  serve 
in  the  houses  of  Spaniards  and  civilized  Filipinos  without  compensa- 
tion.    In  some  cases  they  were  not  even  given  food. 

In  view  of  the  foregoing  facts,  the  compelling  the  inhabitants  of  the 
province  to  render  involuntary  service,  either  as  "polistas"  or  in  any 
other  capacity,  has  been  absolutely  prohibited,  except  for  the  satisfac- 
tion of  unpaid  taxes,  license  fees,  or  fines.  A  violation  of  this  provi- 
sion has  been  made  a  misdemeanor,  punishable  by  a  fine  of  not  more 
than  five  hundred  dollars  Mexican,  or  imprisonment  for  not  more  than 
one  year,  or  both,  in  the  discretion  of  the  court. 

A    CIVIL   PROVINCIAL   GOVERNMENT    FOR   BENGUET. 

It  is  proposed  to  create  a  civil  provincial  government  before  organ- 
izing the  townships  of  Benguet  under  the  act  just  described,  and  the 
Commission  has  passed  a  law  providing  that  this  government  shall 
consist  of  a  provincial  governor,  a  provincial  secretary,  and  a  provin- 
cial inspector.  The  governor  is  the  chief  executive  of  the  province, 
and  will  act  as  its  treasurer  until  such  time  as  the  appointment  of  a 
provincial  treasurer  shall  become  necessary.  Until  a  departmental 
government  shall  be  established  which  includes  the  province  of 
Benguet,  he  will  report  directly  to  the  military  governor  of  the 
islands. 

It  is  his  duty  to  make  known  to  the  people  of  his  province  all  gen- 
eral laws  or  governmental  orders  which  concern  them,  and  to  pass 
upon  the  ordinances  and  acts  of  the  several  township  councils.  Should 
the  council  of  any  township  fail  to  enact  measures  necessary  to  carry 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  61 

out  the  provisions  of  the  law  for  the  organization  of  such  townships, 
the  governor  is  authorized  to  issue  suitable  orders  to  this  end.  He 
has  power  to  siLspend  any  township  official  charged  with  misconduct 
or  with  disloj^altj'  to  the  United  States,  and  after  proper  notice  and 
hearing  to  remove  or  reinstate  him;  but  such  suspension,  removal,  or 
reinstatement  must  be  reported  to  the  Commission,  who  may  approve 
or  revoke  the  same. 

The  governor  is  made  ex  officio  a  justice  of  the  peace,  and  has  power 
to  issue  warrants  for  the  arrest  of  persons  charged  with  the  commis- 
sion of  offenses,  to  make  preliminary  examinations,  and  to  commit  the 
accused  for  trial  b}^  court  of  first  instance  for  the  provinces  of  Union 
and  Benquet,  if  the  facts  warrant  such  action.  He  is  also  empowered 
to  take  bail  from  accused  persons  if  the  cases  are  bailable.  He  is  the 
presiding  officer  of  a  board  of  assessors  for  determining,  for  purposes 
of  taxation,  the  value  of  real  estate  in  regard  to  which  dispute  arises, 
and  he  has  general  control  of  all  constabulary  and  police  forces  in  the 
province,  subject  to  the  supervision  of  the  chief  executive  of  the 
insular  government. 

The  provincial  secretary  is  the  custodian  of  all  official  records  and 
the  interpreter  and  translator  for  the  provincial  governor,  as  well  as 
the  recording  officer  in  all  judicial  and  official  proceedings  over  which 
the  provincial  governor  presides. 

It  is  the  Huty  of  the  provincial  inspector  to  visit  and  inspect  the 
several  townships  of  the  province  at  stated  intervals  and  on  special 
occasions,  as  the  provincial  governor  may  direct,  and  to  report  to  the 
latter  the  result  of  his  investigations.  As  the  province  of  Benguet  is 
extensive  and  it  takes  some  two  weeks  to  make  the  round  of  the  town 
ships,  the  office  of  inspector  is  important,  for  the  governor  must  keep 
in  touch  with  conditions  in  the  several  townships  without  absenting 
himself  too  frequently  and  for  too  long  periods  from  the  capital. 

The  capital  of  the  province  is  changed  from  Trinidad  to  Baguio. 
The  site  oi  the  latter  town  is  in  every  way  suitable,  while  Trinidad  is 
situated  at  the  bottom  of  what  was  once  a  volcanic  crater  and  clouds 
are  constantly  caught  and  held  in  the  valley  where  it  lies,  causing  a 
great  deal  of  fog.  On  this  account  the  Spaniards  had  under  con- 
sideration the  changing  of  the  capital  to  some  other  and  more  suitable 
point.  Furthermore,  it  is  anticipated  that  Baguio  would  be  the 
terminal  of  a  branch  railway  connecting  Dagupan  or  Sual  with 
Benguet,  an  additional  reason  for  the  transfer. 

It  should  be  clearly  understood  that  the  provincial  and  municipal 
governments  provided  for  Benguet  are  special  measures  designed  to 
meet  the  needs  of  a  primitive  and  illiterate  people.  They  are  in  no 
sense  indicative  of  what  it  is  intended  to  give  the  civilized  tribes. 

It  is  proposed  to  establish  a  school  for  English  and  rudimentary 
manual  training  at  Baguio  in  the  near  future,  and  to  provide  for  the 
vaccination  of  the  entire  population  of  the  province. 


62  KKl'OliTS    (.)F    TUK    CIVIL    GOVKUNMKNT 

THE    MANILA   LIQUOR   TRAFFIC. 

The  only  locrislation  thus  far  uudcrtakcn  by  the  Commission  which 
bears  directly  on  the  conduct  of  municipal  ati'aii's  in  the  city  of 
Manila  is  a  law  regrulating  the  sale  of  spirituous,  malt,  vinous,  or  fer- 
mented liquors. 

It  has  proved  difficult  to  obtain  accurate  information  as  to  the  number 
and  character  of  places  at  which  liquor  was  sold  in  this  city  prior  to 
American  occupation.  According  to  the  best  information  available, 
there  were  14  "cantinas,"  corresponding  more  or  less  directly  to  our 
saloons  or  bars.  It  has  been  definitely  ascertained  that  there  were 
2,206  shops  where  the  so-called  native  wines  were  sold  at  retail,  audit 
is  believed  that  there  were  not  less  than  4,000  such  shops.  Practi- 
cally all  drug  stores  and  groceries  sold  wines  and  liquors.  No  munici- 
pal license  was  required,  the  payment  of  an  industrial  tax  conferring 
the  right  to  sell  intoxicating  beverages. 

Until  January  4,  1900,  there  was,  strictly  speaking,  no  liquor- 
license  law  in  Manila.  All  licenses  to  sell  liquor,  of  whatsoever  class, 
were  general  business  licenses,  the  fee  for  which  was  only  $3  plus  a  |1 
license  stamp.  On  June  30,  1899,  such  business  licenses  had  been 
issued  to  214  saloons.  Fourteen  of  them  had  been  canceled,  leaving 
200  outstanding. 

Up  to  February  1,  1900,  there  were  issued  28  more  business  licenses 
to  saloons,  of  which  4  were  canceled,  leaving  outstanding  a  total 
of  224. 

On  January  4, 1900,  a  general  order  was  issued  by  the  military  gov- 
ernor providing  regulations  for  the  issue  of  saloon  licenses,  properly 
so  called,  to  take  effect  February  1,  1900,  and  all  outstanding  saloon 
licenses  were  canceled  on  January  31.  Under  the  provisions  of  the 
above-mentioned  order  there  were  issued  between  February  1  and 
June  30,  80  licenses  for  wine,  liquor,  and  beer  saloons  and  87  licenses 
for  wine  and  beer  saloons,  making  a  total  of  167  licenses  issued.  Of 
these,  12  were  revoked  or  surrendered,  leaving  155  outstanding  on 
June  30.  This  number  includes  hotel  and  restaurant  liquor  licenses. 
On  November  23,  1900,  the  following  licenses  were  in  force: 

First-class  bar  licenses  (wine,  liquor,  and  beer) 43 

Second-class  bar  licenses  (wine  and  beer) 41 

First-class  bar  licenses,  with  hotel  privilege 17 

Second-class  bar  licenses,  with  hotel  privilege 7 

making  a  total  of  108,  as  against  155  on  June  30  and  224  on  Febru- 
ary 1. 

Meanwhile  the  number  of  shops  at  which  the  so-called  "native 
wines"  were  sold  at  retail  had  been  reduced  from  approximately  4,000 
at  the  time  of  the  American  occupation  to  408  on  November  23,  1900. 
It  wiU  be  seen,  therefore,  that  since  February  1,  1900,  there  has  been 


OF    THE    PHILIPPINE    ISLANDS,    1<)0()-H)n3. 


63 


a  steady  and  material  reduction  in  the  number  of  institutions  which 
could  be  properly  classed  as  saloons,  while  the  number  of  retail  shops 
for  the  native  ""wines"  has  been  reduced  since  American  occupation 
by  approximately  3,600.  This  last  fact  is  especially  important,  as  the 
so-called  wines  (vinos)  are  concocted  by  mixing  strong  and  often 
impure  alcohol  with  various  oils  and  flavoring  extracts,  and  are,  in 
most  instances,  harmful  in  the  extreme  if  imbibed  in  any  considerable 
quantity.  In  fairness  to  the  native  it  should  be  stated  that  he  ordi- 
narily uses  his  "vino"  very  temperately,  and  consequently  suflers 
comparatively  little  harm. 

In  the  law  above  referred  to  the  Commission  has  imposed  many  new 
restrictions  on  the  sale  of  intoxicants,  and  has  forbidden  saloons,  after 
April  1,  1901,  on  certain  of  the  principal  streets  and  plazas,  namely, 
the  Escolta,  Calle  Rosario,  Plaza  Moraga,  Plaza  Cervantes,  Calle  San 
Fernando,  and  a  part  of  Calle  Nueva. 

The  following  licenses  and  fees  are  provided  for: 


Name  of  license. 

Liquors  allowed  sold. 

Cost  per 
year. 

First-class  bar 

Fermented,  vinous  malt  or  spirituous 

Pesos. 
1,200 
700 

Second-class  bar 

Fermented,  vinous  or  malt 

Theater 

1,600 
1  000 

First-class  hotel 

do 

Second-class  hotel 

600 

Druggists'  liquor 

Fermented,  vinous,  malt  or  spirituous 

100 

Grocery  liquor 

do 

100 

Brewers'  

Brewery  products 

1  ''00 

Distillers' 

600 

First-class  wholesale  liquor 

1  200 

Second-class  wholesale  liquor 

Fermented,  vinous,  or  malt.. 

600 

Third-class  wholesale  liquor 

Fermented,  vinous 

52 

Kative-wlne  license 

3 

All  laws  and  regulations  heretofore  governing  the  issue  of  licenses 
for  the  sale  of  liquor  are  repealed.  Violations  of  the  minor  pro- 
visions of  the  law  are  punishable  upon  conviction  by  a  fine  not 
exceeding  200  pesos,  or  imprisonment  for  six  months,  or  both,  in  the 
discretion  of  the  trial  court,  for  each  offense.  A  violation  of  any 
provision  of  the  act  may  subject  the  offender  to  having  his  license 
revoked,  in  the  discretion  of  the  provost-marshal-general,  while,  if  he 
is  convicted  of  selling,  giving  away,  or  otherwise  disposing  of  any 
liquor  not  allowed  by  his  license,  or  during  the  hours  wherein  the  sale 
of  such  liquor  is  prohibited,  or  of  selling,  giving  away,  or  otherwise 
disposing  of  any  intoxicating  liquor  to  any  intoxicated  person,  the 
license  becomes  null  and  void  as  a  consequence  of  conviction. 

It  is  provided  that  none  of  the  so-called  native  "  wines  "  shall  be  sold 
except  by  holders  of  native-wine  licenses  and  that  such  holders  shall 
not  be  allowed  to  sell  intoxicants  of  any  other  sort  whatever.  The 
license  fee  for  dealers  in  native  wines  has  been  placed  at  what  might 
seem  a  ridiculously  low  figure,  because  the  capital  invested  in  the  busi- 
ness amounts  to  but  a  few  dollars  and  because  experience  has  showu 


64  RKTOKTS    OF    'I'lIK    CIVIL    (iOVKKNMKNT 

that  direct  control  of  the  provost-marshal-gencral  is  the  most  efficient 
means  for  holdino-  this  traffic  in  check.  The  selling  of  native  "wines" 
to  soldiers  of  the  United  States,  under  any  circmiistances,  is  strictly 
prohibited,  because  the  soldiers  are  inclined  to  indulge  in  these  inju- 
rious beverages  to  excess,  with  disastrous  results.  As  already  stated, 
the  Filipino  ordinarily  uses  them  moderately,  if  at  all. 

Fortunately  he  does  not  to  any  considerable  extent  frequent  the 
American  saloon.  With  a  view  to  preventing  his  being  attracted 
there,  the  pla3'ing  of  musical  instruments  or  the  conduction  or  opera- 
tion of  any  gambling  device,  phonograph,  slot  machine,  billiard  or 
pool  table,  or  other  form  of  amusement  in  saloons,  bars,  or  drinking 
places  is  prohibited. 

License  fees  are  now  imposed  for  the  first  time  on  apothecary  shops, 
drug  stores,  and  groceries  which  sell  liquor. 

The  granting  of  licenses  for  the  sale  of  any  intoxicating  liquor  in  the 
public  markets,  "  kioskos,"  booths,  or  stands  situated  in  the  public 
streets  or  plazas,  or  bj'  street  venders  or  peddlers,  is  prohibited. 

It  is  further  provided  that  no  application  for  a  license  or  for  a 
renewal  thereof  to  conduct  a  first  or  second  class  bar  shall  be  received 
until  the  applicant  shall  have  published,  at  his  own  expense,  a  notice 
in  six  consecutive  editions  of  one  Spanish  and  one  English  newspaper, 
to  be  designated  by  the  provost-marshal-general. 

The  object  of  this  provision  is  to  give  property  owners  and  residents 
in  the  vicinity  where  it  is  desired  to  establish  such  bar  or  saloon  an 
opportunity  to  protest  to  the  provost-marshal  against  the  granting  of 
the  license.  The  provost-marshal  will  not  grant  licenses  in  the  face 
of  protest  on  the  part  of  such  property  owners  or  residents. 

It  is  confidentl}^  anticipated  that  the  increased  charges  imposed  on 
the  liquor  traffic,  the  restriction  as  to  streets  on  which  a  liquor  busi- 
ness may  be  conducted,  and  the  wide  discretionary  powers  given  to 
the  provost-marshal-general  will  materially  reduce  the  number  of 
places  in  the  city  at  which  intoxicants  are  sold. 

MINERAL   WEALTH   AND   THE    MINING   INDUSTRY. 

It  is  difficult  at  the  present  time  to  make  any  accurate  general  state- 
ment as  regards  the  mineral  resources  of  the  Philippine  Islands.  There 
has  never  been  any  mining,  properly  so-called,  in  this  archipelago  up 
to  the  present  time.  The  mining  fields  have  never  been  thoroughly 
prospected,  and  even  where  very  valuable  deposits  were  known  to 
exist  they  were  worked,  if  at  all,  in  a  haphazard  and  intermittent 
fashion. 

Present  indications  are  that  the  near  future  will  bring  a  great  change 
in  the  mining  industry.  According  to  the  chief  of  the  mining  bureau 
there  are  iww  some  twelve  hundred  prospectors  and  practical  miners 
scattered  through  the  different  islands  of  the  archipelago.     Of  these, 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  65 

probably  90  per  cent  are  Americans.  They  are  for  the  most  part 
men  of  good  character.  They  are  pushing  their  way  into  the  more 
inaccessible  regions,  furnishing  their  own  protection  and  doing  pros- 
pecting of  a  sort  and  to  an  extent  never  before  paralleled  in  the  history 
of  the  Philippine  Islands.  The  result  is  that  our  knowledge  of  the 
mineral  resources  of  the  group  is  rapidly  increasing.  When  all  due 
allowance  is  made  for  prospectors'  exaggerations,  it  is  not  too  much 
to  say  that  the  work  thus  far  done  has  demonstrated  the  existence  of 
many  valuable  mineral  fields.  The  provinces  of  Benguet,  Lepanto, 
and  Bontoc  in  particular  form  a  district  of  very  great  richness. 

COPPER. 

In  the  province  of  Lepanto,  at  Mancayan  and  Suyoc,  there  are 
immense  deposits  of  gray  copper  and  copper  sulphide,  and  running 
through  this  ore  are  veins  of  gold-bearing  quartz,  which  is  more  or 
less  disintegrated  and  in  places  is  extremely  rich.  This  copper  ore 
has  been  assayed,  and  the  claim  is  made  that  it  runs  on  the  average  8 
per  cent  copper,  while  gold  is  often  present  in  considerable  quantities. 
The  deposits  are  so  extensive  as  to  seem  almost  inexhaustible. 

The  Commission  has  been  unable  to  verify  the  statements  as  to  the 
extent  and  richness  of  these  copper  deposits  through  its  own  agents, 
but  the  authority  for  them  is  such  that  they  are  believed  to  be  sub- 
stantially correct. 

As  early  as  1856-57  two  concessions  were  granted  to  the  Cantabro 
Philippine  Mining  Company,  and  an  attempt  was  made  to  exploit  them 
and  market  their  product.  Rude  methods  of  mining,  ruder  methods 
of  extracting  the  metal,  and  still  more  rude  and  primitive  methods  of 
transportation,  combined  with  lack  of  sufficient  capital  and  suitable 
labor,  led  to  the  abandonment  of  this  attempt,  and  for  more  than 
twenty  years  the  property,  which  in  itself  is  a  small  claim  upon  the 
immense  ledge  above  referred  to,  has  been  occupied  only  to  the  lim- 
ited extent  required  by  the  Spanish  mining  laws  to  prevent  the  cancel- 
lation of  the  concession.  The  officer  at  present  in  charge  of  the  min- 
ing bureau  characterizes  this  deposit  as  an  "undoubted  bonanza." 
The  main  thing  necessary  for  its  exploitation  is  the  opening  up  of  a 
short  line  of  communication  with  the  coast. 

COAL. 

Lignites  are  known  to  exist  in  Luzon,  Bataan  (the  island,  not  the 
province),  -Mindoro,  Masbate,  Negros,  Cebu,  Mindanao,  and  other 
islands.  Some  of  the  deposits  are  very  extensive.  As  yet,  they  have 
})cen  worked  only  at  or  near  the  surface.  It  is  therefore  remarkable 
that  the  samples  thus  far  obtained  should  prove  to  be  as  good  as  is  shown 
by  actual  analysis.  A  comparative  table  follows,  giving  analyses  of  Car- 
diff, Australian,  and  Wyoming  coals,  as  well  as  some  of  the  Philippine 
23181—04- 5 


66 


UKl'OKTS    OF    TlIK    CIVIL    COV  KKNMKNT 


oojils,  in  order  thai  tlio  latter  may  be  eonipared  Avith  the  former.  In  this 
table  Mill  be  found  the  famous  Rock  Springs  commereial  and  locomo- 
tive eoals;  the  Union  Pacific;  the  Frcemont,  Elkhorn  and  Missouri  Val- 
ley (C.  and  N.  W.  K.  R.);  the  Burlington  and  Missouri  in  Nebraska 
(C,  B.  and  Q.  R.  R.),  and  the  Cambria  Coal  Mining  Company's  coking 
coal,  all  of  them  lignites  and  all  of  them  successful  steam  coals. 

Anali/sin  of  PhUipplvc  coah,  coinparrd  vUh  Oirdiff,  Auslrnlian,  and  Wyoming  coah. 


Name  of  mine. 


Location. 


*-<   "   O) 

-1=.  OS 


Cardiff 

Newcastle  and  Sidney 

Santa  Rosa 

Van  Dyke ■. 


Sweetwater  Coal  Co. 
Union  Pacific  No.  1  . 


England 

Australia 

Cebii 

Rock     Springs, 

Wyo. 
do 


.do 


Caridad  . 
Dillon... 


Esperanza  . 
Magallanes 


Union  Pacific  No.  1 ... 
Union  Pacific  No.  2  ... 
Deer  Creek  Coal  Co  . . . 


Grinnell 


Burgess 

Antelope 

M.  and  M 

Jumbo 

Inez  Coal  Co . 


Cataingan 
Bulalacao. 
Becker 


Union  Pacific  No.  1  . . 


Cebii  .... 
Rawlins . 


Cebii  .. 
do. 


Almy.Wyo 

Carbon, Wyo  ... 
Glenrock,  Wyo  . 

Sheridan,  Wyo.. 

do 


Cambria,  Wyo  . 
Buffalo,Wyo... 
Cambria,  Wyo . 
Inez,  Wyo 


Masbate 

Mindoro 

Sheridan,  Wyo 

Hanna  


Per 

cent. 

83.00 

71.45 

57. 94 

66.50 

55.70 

55.60 

5-1.56 
54.00 

51.96 
49. 50 

48. 75 
48.30 
47. 75 

44.75 

44.70 
44.25 
44.20 
43. 65 

42. 50 


41.40 
41.06 
38.75 

38.70 


Per 
cent. 
8.00 
16. 25 
31.75 
34.50 

36.95 

36.42 

34.53 
32. 85 

37.56 
35.03 

34.88 
35.43 
33.03 

33.18 

37.55 
39.38 
34.30 
40.13 
36.05 


43.31 
42. 40 
44.37 


Per 
cent 
4.50 
2.90 
9.23 
6.25 

5.  .55 

5.38 

9.60 
6.65 

7.80 
11.18 

7.37 
7.42 
13.82 


Pa 
cent 

3.90 

9.40 

1 

2.75 


1.80 
2.60 

1.31 
6.60 

2.68 
3.62 

9.00 
8.85 
5.40 


13. 05  4. 70 

6. 72  9. 65 

14. 70,  6. 80 

5.72  10.50 

14. 65  6. 80 


10. 50 
12. 50 

8.72 


4.38 
4.30 
8.21 


842 
432 
674 


7,530 
6,205 
5,353 


1,369 


5,643 


1,632 
1,491 


5,829 
5,490 


91.60  fuel. 

87.70  fuel.    Mixed. 
89.69  fuel. 

91.00  fuel.  Commer- 
cial Rock  Springs. 

92.65  fuel.  Commer- 
cial Rock  Springs. 

92.02  fuel.  Union  Pa- 
cific  R.  R.  Rock 
Springs. 

89.09  fuel. 

86.85  fuel.  Commer- 
cial steam. 

89..52  fuel. 

84.53  fuel,  0.67  foreign 
matter. 

83.63  fuel.  Central  Pa- 
cific and  Union  Pa- 
cific R.R.locomotive 

83.73  fuel.  Union  Pa- 
cific R.  R.  locomo- 
tive. 

80.78  fuel.  Fremont, 
Elkhorn  and  Mis- 
souri Valley  R.  R. 
locomotive. 

77.93  fuel.  Burlington 
and  Missouri  River 
R.  R.  in  Nebraska 
locomotive. 

82.25  fuel.  Commer- 
cial steam. 

84.63  fuel.  Black  Hills 
coke. 

78..50  fuel.  Commer- 
cial steam. 

83.78  fuel.   Black  Hills 

78.55  fuel.  Fremont, 
Elkhorn  and  Mis- 
souri Valley  locomo- 
tive. 

84.71  fuel.  0.41  sulphur. 
83.20  fuel. 

83.12  fuel.  Commer- 
cial -steam. 

73.95  fuel.  Union  Pa- 
cific R.  R.  locomo- 
tive. 


Testimony  is  unanimous  to  the  fact  that  the  Philippine  coals  do  not 
clinker,  nor  do  they  soil  the  boiler  tubes  to  any  such  extent  as  do 
Japanese  and  Australian  coals.  Some  of  them  have  been  given  prac- 
tical tests  in  steamers  engaged  in  the  coasting  trade  of  the  archi- 
pelago, with  very  satisfactory  results  as  regards  their  steam-making 
properties. 


OF    THE    PHILIPPINE    ISLANDS,    1!K»0-1903.  67 

The  extensive  fields  near  Bulacacao,  in  southern  Mindoro,  are  within 
4  to  6  miles  of  a  harbor  which  gives  safe  anchorage  throughout  the 
year  and  which  has  water  deep  enough  for  the  largest  ocean-going 
vessels.  Some  of  the  Cebu  deposits  are  also  conveniently  situated 
with  reference  to  harbor  facilities.  It  is  to  be  confidently  expected  that 
the  coals  will  play  a  very  important  part  in  the  future  development  of 
the  archipelago. 

GOLD. 

The  outlook  as  to  gold  mines  grows  more  favorable  as  the  opera- 
tions of  prospectors  are  extended.  Modern  gold-mining  machinery 
has  never  been  used  in  the  Philippines.  Igorrote  miners  in  the 
Benguet-Lepanto-Bontoc  district  discard  all  rock  in  which  there  is  not 
visible  a  considerable  quantity  of  free  gold.  Prospectors  in  this  region 
claim  to  have  located  very  extensive  deposits  of  low-grade,  free-milling 
ore,  which  will  yield  large  and  certain  returns  as  soon  as  concessions 
can  be  secured  and  machinery  put  in  place.  Unless  the  statements  of 
those  who  have  been  working  in  this  region  are  utterly  false,  it  is  true 
that  very  valuable  deposits  have  been  located  and  that  extensive  oper- 
ations will  be  undertaken  as  soon  as  claims  can  be  granted  and  machin- 
ery placed.  At  all  events,  it  is  certain  that  the  men  who  have  located 
•these  deposits  have  sufficient  faith  in  them  to  camp  on  them  and  wait 
month  after  month  for  the  time  to  come  when  they  can  establish  their 
claims. 

IRON. 

Extensive  deposits  of  high-grade  iron  ore  are  known  to  exist,  but  it 
would  seem  that  their  development  must  be  preceded  by  the  develop- 
ment of  the  coal  fields. 

NECESSITY    FOR   MINING    LAWS   AND    FOR   SETTLEMENT   OF   EXISTING 

CLAIMS. 

There  can  be  no  question  that  it  is  to  the  interest  of  the  inhabitants 
of  this  archipelago  to  have  its  mineral  resources  developed.  It  is 
equally  certain  that  the  men  who  have  faced  manifold  dangers  in  locat- 
ing valuable  mineral  properties,  and  who  are  ready  and  anxious  to 
develop  them,  should  be  given  an  opportunity  to  do  so  at  the  earliest 
practicable  time. 

Although,  as  has  been  stated,  the  character  of  the  prospectors  and 
miners  in  the  archipelago  is  above  the  average,  the  presence  of  a  con- 
siderable body  of  such  men  who  have  found  mineral  deposits,  but  are 
forced  to  endure  a  long  period  of  inactivity,  pending  the  time  when 
they  can  establish  their  claims  and  begin  active  operations,  is  not  a 
desirable  factor  in  the  present  situation.  The  reports  which  are  being 
sent  out  are  of  such  a  character  as  to  make  it  highly  probable  that  the 


68 


REPORTS    OK    THK    CIVIL    (K>VKKNMENT 


uiuiil)or  of  })rospectors  and  miners  will  be  greatly  augmented  in  the 
near  future.  It  seems,  therefore,  most  important  tliat  immediate  steps 
should  be  taken  to  make  it  possible  for  the  government  established  in 
these  islands  to  grant  mining  claims. 

There  is,  furthermore,  necessity  for  some  tribunal  empowered  to 
decide  questions  arising  in  regard  to  Spanish  mining  grants  and  so- 
called  ''titles,"  although  the  word  "title"  is  in  this  case  a  misnomer, 
for  under  Spanish  law  only  concessions  were  granted,  the  title  being 
continued  in  the  Crown.  The  ownership  of  the  concessionary  was 
limited  to  a  license  of  indeterminate  length,  allowing  him  to  extract 
certain  minerals  and  to  dispose  of  the  same  and  to  convey  to  others 
his  rights  by  deed.  This  "title"  was  at  all  times  subject  to  eleven 
general  conditions,  and  failure  to  comply  with  any  one  of  them  made 
it  possible  for  the  Crown  to  cancel  the  concession. 

Endless  questions  are  arising  as  to  the  status  of  concessions  granted 
by  the  Spanish  Government  to  which  the  titles  had  been  perfected  or 
were  in  process  of  perfection.  For  purposes  of  convenience,  claims 
are  here  referred  to  as  "first-class  claims"  where  title  has  been  per- 
fected, and  as  "second-class  claims"  where  title  was  in  process  of 
perfection. 

FIEST-CLASS   CLAIMS    (SPANISH   GRANTS   RECORDED). 

Of  such  concessions  there  were  recorded  and  uncanceled  upon  the 
records  at  the  time  the  Philippine  Islands  were  ceded  by  Spain  to  the 
United  States  no  less  than  481.  These  claims  were  embraced  in  152 
" expedientes "  (or  petitions);  in  other  words,  there  were  152  different 
mines.     They  were  distributed  among  the  various  minerals  as  follows: 


Claims. 


Gold 

Coal 

Copper 

Iron 

Sulphur... 
Marble.... 
Petroleum 

Kafilin 

Guano  

Total 


Square  meters. 

338 

19,974,512.26 

116 

17,400,000 

2 

166, 849. 24 

9 

1,137,571.09 

3 

180, 000 

4 

80,000 

4 

600, 000 

4 

80,000 

1 

20, 000 

491 

39, 638, 932. 58 

Some  of  these  grants  are  doubtless  invalid  because  of  long  abandon- 
ment, but  the  formal  entry  of  cancellation  has  not  been  made  upon  the 
records. 

SECOND-CLASS   CLAIMS  (INCOMPLETE    SPANISH    GRANTS). 

When  the  Philippine  Islands  were  ceded  to  the  United  States  there 
were  proceedings  pending  in  toe  department  of  mines  for  the  survey 
and  official  demarcation  of  113  claims,  embracing  10,yttl,014.71  square 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903. 


69 


meters,  and  contained  in  37  petitions,  and  divided  among  the  minerals 
as  follows: 


(  Claims. 

Area. 

Gold                                           

61 
49 

1 
2 

Square  meters. 
3,531,614.71 

Coal                                                                 

7,360,000 

20, 000 

40.000 

Total           

113 

10,941,614.71 

These  claims  had  not  5^et  reached  a  stage  where  they  could  be  closed 
by  a  concession,  since,  by  the  terms  of  the  Spanish  law,  the  act  of 
demarcation,  based  on  a  definite  official  survey  by  a  public  surveyor, 
was  a  condition  precedent  to  the  granting  of  a  title,  and  was  the  only 
means  by  which  the  lands  could  be  segregated  from  the  public  domain. 

THIRD-CLASS    CLAIMS. 

There  remains  a  third  class  of  claims,  viz,  those  which  it  was 
attempted  to  establish  through  the  mining  bureau  at  Manila  by  the 
filing  of  petitions  there  between  May  4,  1898,  and  March  30, 1899.  It 
would  appear  that  there  was  no  warrant  of  law  for  the  filing  of  such 
petitions,  and  that  they  have  no  legal  value.  Nevertheless,  they 
number  1,618  and  embrace  149,288,13'4.37  square  meters.  They  are 
divided  among  the  minerals  as  follows: 


Claims. 

Area. 

Qold                                                        

1,006 

467 

108 

16 

3 

10 

4 

4 

Square  meters. 
60,348,134.37 

Coal                                     

70,050,000 

15,160,000 

2,400,000 

450, 000 

200,000 

80, 000 

600, 000 

Total                                              

1,618 

149,288,134.37 

As  already  stated,  it  is  of  great  importance  that  some  tribunal  should 
be  established  at  the  earliest  possible  date  by  which  the  legal  status  of 
these  claims  may  be  determined.  In  many  if  not  all  instances  the 
disturbed  conditions  which  have  prevailed  in  the  archipelago  since 
1896  have  prevented  the  owners  of  claims  of  the  first  class  from  ful- 
filling all  the  conditions  precedent  to  keeping  their  titles  clear.  They 
desire  to  pay  the  taxes  due  on  this  property,  if  it  be  held  that  they 
are  the  rightful  owners  on  the  one  hand,  and  on  the  other  they  can 
hardly  be  compelled  to  pay  them  unless  their  ownership  is  recognized. 
They  also,  and  very  naturally,  desire  to  prevent  others  from  squatting 
on  their  claims.     Similarly,  those  who  had  begun  to  perfect  titles  to 


70  REPORTS    OP    THE    OIVIL    GOVERNMENT 

iiiinuig-  concossioiis  prior  to  the  change  of  sovereignty  are  anxious 
to  learn  what  their  rights  are. 

The  island  government  is  interested  in  the  clearing  up  of  titles  to 
these^  mining  properties  on  account  of  the  revenue  which  would 
result.  The  owners,  or  would-be  owners,  are  interested  on  account 
of  the  possible  profit  to  themselves.  The  people  at  large  are  inter- 
ested on  account  of  the  increased  opportunities  for  the  employment  of 
labor  which  would  accompany  the  active  development  of  mineral 
deposits.  There  is  every  reason,  therefore,  why  a  mining  code  should 
be  enacted  for  these  islands  at  the  earliest  practicable  time  and  suit- 
able provision  made  for  determining  the  rights  of  all  claimants  to 
mining  properties.  It  is  believed  that  this  whole  matter  should  be 
dealt  with  here  by  the  legislative  body  at  present  existing  in  the 
islands,  but  the  Commission  has  held  that  it  can  not  determine  ques- 
tions arising  as  to  existing  claims  nor  consider  applications  for  new 
concessions  until  duly  authorized  by  Congress.  In  view  of  the 
importance  of  the  interests  involved,  such  authorization  is  urgently 
requested. 

FORESTRY. 

The  timber  of  the  Philippine  Archipelago  forms  one  of  its  most 
important  natural  sources  of  wealth.  The  timber-producing  trees 
have  been  classified  in  order  of  their  commercial  value  as  follows: 
Superior  group,  12  species;  first  group,  17  species;  second  group,  49 
species;  third  group,  74  species;  fourth  group,  200  species;  fifth  group, 
33  species;  total  species,  385.  It  is  certain  that  there  still  remain 
more  than  50  species  not  yet  classified.  Included  in  this  list  are  very 
hard  woods,  capable  of  taking  a  beautiful  polish;  woods  that  resist 
climatic  influences  and  are  proof  against  the  attacks  of  white  ants; 
woods  especially  suited  to  use  for  sea  piling,  on  account  of  their  imper- 
viousness  to  the  attacks  of  Teredo  nwvalis^  or  for  railroad  ties,  because 
they  last  extremely  well  when  placed  in  the  ground;  in  short,  there 
are  woods  for  every  imaginable  use. 

There  is  a  great  variety  of  trees  yielding  valuable  gums,  and  rubber 
and  gutta-percha  are  abundant  in  Mindanao  and  Tawi-Tawi.  At  least 
17  dyewoods  are  produced  within  the  limits  of  the  archipelago,  while 
other  trees  yield  valuable  essential  oils  or  drugs.  It  has  been  esti- 
mated by  the  present  head  of  the  Forestry  Bureau,  from  such  data 
as  he  has  been  able  to  secure,  that  there  are  not  less  than  40,000,000 
acres  of  forest  lands  in  the  archipelago. 

Under  the  Spanish  administration  a  force  of  QQ  expert  foresters  and 
64  rangers,  with  40  other  subordinates,  such  as  clerks,  draftsmen,  etc., 
formed  the  personnel  of  the  forestry  department.  The  service  was 
organized  in  1863,  and  throughout  its  history  the  higher  officials  were 
selected  from  the  Spanish  corps  of  engineers.     No  Filipino  was  per- 


OF    THE    PHlLIi'PINE    ISLANDS,    1900-1903.  7l 

mitted  to  hold  any  of  the  more  important  positions.  In  addition  to 
the  care  of  the  forests,  the  department  had  in  charge  the  surve}^  of  all 
public  lands.  The  annual  income  during  the  last  years  of  the  Spanish 
regime  was  approximately  $150,000,  Mexican. 

The  present  forestry  bureau  was  organized  on  the  14th  of  April, 
1900,  under  General  Order  No.  50,  which  placed  Capt.  George  P. 
Ahern,  Ninth  United  States  Infantry,  in  charge,  making  no  specifica- 
tions whatever  as  to  his  duties.  He  received  authority  to  employ  4 
foresters,  2  rangers,  a  stenographer,  and  a  translator.  This  force  was 
gradually  increased  until,  on  the  18th  of  September,  it  consisted  of  a 
translator,  a  stenographer,  a  chief  assistant,  7  assistant  foresters,  1 
head  ranger,  and  13  rangers. 

On  July  1  regulations  prepared  by  the  forestry  bureau  and  gov- 
erning the  utilization  of  the  forest  products  of  state  lands  were  pub- 
lished as  General  Order  No.  92.  These  regulations  were  based  on 
those  in  force  under  Spanish  sovereignty,  but  the  latter  were  some- 
what condensed  and  a  few  changes  were  introduced.  The  old  blank 
forms  were  kept  and  additional  ones  provided  for.  Under  the  new 
rules  the  prices  per  cubic  foot  charged  by  the  Government  for  timber 
cut  on  public  lands  are  as  follows:  Superior  group,  7  cents;  first 
group,  5  cents;  second  group,  4  cents;  third  group,  li  cents;  fourth 
group,  1  cent;  fifth  group,  i  cent  (United  States  currency).  There 
are  given  lists  of  the  trees  of  the  several  groups,  with  their  common 
names  and  their  scientific  names,  so  far  as  the  latter  have  been  ascer- 
tained, together  with  rules  governing  the  cutting  and  measuring  of 
timber  and  the  payment  of  the  charges  thereon,  as  well  as  provisions 
as  to  how  the  various  gums  shall  be  gathered. 

It  seemed  extremely  important  that  an  order  allowing  the  cutting 
of  timber  should  be  put  into  force  at  the  earliest  possible  time,  as 
there  was  practically  a  lumber  famine  at  Manila  and  other  important 
points  in  the  archipelago,  while  the  destruction  of  buildings  incident 
to  the  war,  and  the  increased  demand  for  good  dwelling  houses, 
resulting  from  the  large  influx  of  Americans,  made  it  imperative  that 
provisions  should  be  made  so  that  the  felling  of  trees  and  marketing 
of  lumber  might  lawfully  begin.  The  regulations  were,  therefore, 
necessarily  somewhat  hastily  compiled  by  those  having  the  work  in 
charge. 

The  Commission  is  now  able  to  profit  by  the  practical  results 
obtained  through  putting  them  into  force,  and  is  of  the  opinion  that 
the  clerical  work  connected  with  the  cutting  and  marketing  of  timber 
can  be  simplified  considerably  with  profit  to  all  concerned.  It  seems 
probable  that  the  rates  charged,  which  are  greatly  in  excess  of  those 
charged  under  the  Spanish  tariff,  should  be  somewhat  reduced.  The 
whole  matter  will  be  made  the  subject  of  careful  investigation  and 
legislative  action  in  the  near  future. 


72  REPORTS    OF    THE    CIVIL    OOVEKNMENT 

Early  m  September  the  Commission  investigated  the  affairs  of  the 
forestry  bureau  and  learned  that  no  attemi)t  had  l)eon  made  to  enforce 
the  forestry'  regulations  outside  the  island  of  Luzon,  even  in  such 
great  commercial  centers  as  Iloilo  and  Cebu.  With  a  view  to  the 
immediate  increase  of  its  efhcicncy,  the  forestry  \>ureau  was  i-(H)rgan- 
ized,  so  as  to  consist  of  an  officer  in  charge,  an  inspector,  a  botanist,  a 
chief  clerk  and  stenographer,  a  translator,  a  law  clerk,  a  record  clerk, 
10  assistant  foresters,  and  30  rangers,  the  existing  force  of  foresters 
and  rangers  to  be  augmented  gradually,  as  occasion  might  require, 
until  the  number  above  indicated  was  reached. 

Active  steps  are  now  being  taken  toward  the  location  of  foresters 
and  rangers  at  important  points  throughout  the  archipelago  as  fast  as 
circumstances  will  permit. 

The  present  monthly  collections  of  revenue  from  forest  products 
are  about  $8,000  (Mexican).  This  sum  should  be  largely  increased 
in  the  near  future.  If  the  statements  of  the  chief  of  the  forestry 
bureau  are  correct,  the  forests  of  the  Philippine  Islands  are  more 
extensive  and  more  valuable  than  those  of  India.  It  is  of  the  utmost 
importance  that  the  wanton  destruction  of  valuable  timber  which  has 
been  allowed  to  go  on  here  in  the  past  should  be  checked  at  the  earliesfc 
practicable  time,  while,  with  the  exercise  of  proper  supervision  over 
the  cutting  of  timber  and  the  construction  of  better  roads,  the  annual 
revenue  from  the  sale  of  forest  products  should  soon  become  a  very 
important  source  of  income.  The  chief  difficulty  which  confronts  us 
at  present  is  the  lack  of  honest  and  active  subordinate  officials. 

It  is  absolutely  necessary  that  the  men  who  occupy  these  posts 
should  be  familiar  with  the  more  important  of  the  different  kinds  of 
woods,  so  that  they  may  be  able  to  survey  consignments  of  timber 
and  make  proper  collections  thereon.  The  men  at  present  used  for 
this  work  were,  almost  without  exception,  formerly  employed  for  it 
under  the  Spanish  regime,  and  in  the  view  of  the  chief  of  the  bureau 
many  of  them  are  corrupt.  They  are  exposed  to  severe  temptation, 
for  it  is  a  simple  matter  to  transfer  a  wood  from  the  class  in  which  it 
belongs  to  a  lower  class,  thereby  saving  a  considerable  sum  to  the 
owner,  who  is  often  only  too  willing  to  give  a  part  of  what  he  can 
make  in  this  way  to  the  forester  or  ranger  with  whom  he  is  dealing  in 
order  to  escape  the  payment  of  the  full  amount  due. 

It  is  believed  that  competent  men  should  be  trained  on  the  ground 
for  these  positions  as  speedil}^  as  possible,  and  that  meanwhile  a  close 
inspection  should  be  maintained  over  the  work  of  the  present  incum- 
bents in  office,  who  have  been  informed  that  if  they  are  detected  in 
dishonesty  they  will  not  only  be  dropped  from  the  service  of  the  for- 
estry bureau,  but  will  be  ineligible  for  appointment  to  any  office  which 
falls  under  the  civil-service  law. 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  73 

Great  difficulty  has  been  experienced  in  securing  the  services  of  a 
competent  man  for  inspector,  but  it  is  hoped  that  such  a  man  may 
soon  be  found.  ' 

The  Commission  has  cabled  to  Washington  for  four  experienced 
foresters  with  a  knowledge  of  Spanish  and  of  tropical  botany.  These 
men,  upon  their  arrival,  will  enable  us  to  put  the  service  in  a  much 
more  satisfactory  condition.  It  is  very  important  that  responsible 
and  fully  qualified  white  men  should  be  stationed  at  the  more  impor- 
tant centers  of  the  lumbering  industry  in  these  islands  if  the  forests 
are  to  be  exploited  intelligently  and  the  Government  is  to  receive 
proper  compensation  for  the  timber  cut  on  public  lands. 

It  is  believed  that  nine-tenths  of  the  timber  standing  in  many  of  the 
forests  of  these  islands  might  be  removed  with  great  profit  to  the  Gov- 
ernment and  actual  improvement  to  the  forests,  inasmuch  as  this  would 
give  opportunity  for  rapid  growth  to  the  trees  left  standing. 

MARKET   FOR   AMERICAN   PRODUCTS. 

It  is  a  remarkable  fact  that,  in  spite  of  the  disturbed  condition  of 
the  country  and  the  consequent  interference  with  business,  there  has 
been  a  steady  and  rapid  increase  in  the  customs  receipts,  culmina- 
ting with  the  month  just  past,  during  which  they  reached  a  total  of 
$1,888,837.12  Mexican.  This,  too,  in  spite  of  numerous  drawbacks 
apart  from  those  occasioned  directly  by  the  war.  The  tariff  has  been 
such  as  to  inflict  a  practically  prohibitory  duty  on  some  important 
imports.  The  number  of  cascos  and  lighters  has  been  inadequate  for 
the  prompt  discharge  of  vessels  arriving  in  port,  and  the  custom-house 
facilities  for  the  storing  of  goods  has  proved  insufficient,  so  that  much 
delay  and  heavy  expense  have  been  caused  to  importers.  The  custom- 
house facilities  are  being  increased  as  rapidly  as  possible,  and  it  is 
believed  that  they  will  soon  become  adequate,  while  the  building  of 
cascos  and  lighters  is  progressing  more  and  more  rapidly  as  time 
goes  by. 

The  completion  of  the  breakwaters  inclosing  the  new  port  of  Manila 
and  the  dredging  of  the  basin  thus  formed  will  be  a  very  great  advan- 
tage to  importers  in  this  market.  At  present  vessels  are  sometimes 
compelled  to  lie  idle  for  weeks  during  the  typhoon  season,  owing  to  the 
roughness  of  the  bay.  This  difficulty  will  be  obviated  when  the  break- 
waters are  completed  and  the  basin  is  dredged. 

Anything  that  favors  reduction  in  freights  and  a  consequent  lowering 
of  the  prices  at  which  American  goods  can  be  placed  on  the  market 
here  will  greatly  increase  their  use  among  the  common  people.  It  is 
highly  desirable  that  goods  should  be  shipped  directly  to  Manila. 
When  they  are  transshipped  at  Hongkong  it  is  reported  that  there  is 
considerable  loss  from  careless  handling,  and  freight  rates  from  Hong- 
kong to  Manila  are  exorbitant.     Yet  many  importers  are  obliged  to 


74  REPORTS    OF    THE    CIVIL    GOVERNMENT 

order  their  goods  sent  by  this  route  at  present,  as  the  long  delays  at 
Manila  in  unloading  make  shipowners  unwilling  to  send  their  vessels 
here,  or  lead  them  to  charge  very  high  freight  rates  in  order  to  com- 
pensate themselves  for  the  time  lost  in  port.  The  Commission  has 
already  provided  for  the  completion  of  the  work  outlined  on  the  new 
port  at  the  earliest  possible  time. 

The  coasting  trade  of  the  islands  is  at  present  in  the  hands  of  a  few 
large  companies;  in  fact,  the  bulk  of  it  is  in  the  hands  of  a  single  con- 
cern. Lack  of  competition  enables  the  owners  of  vessels  engaged  in 
this  trade  to  fix  freight  rates,  which  are  so  high  as  to  interfere  consid- 
erably with  the  marketing  of  imported  goods  at  moderate  prices.  The 
coasting  trade  is  extensive,  and  is  certain  to  increase  rapidly  as  order  is 
restored  and  means  of  inland  communication  are  improved.  There  is 
at  present  a  strong  demand  here  for  light-draft  vessels,  suitable  for 
entering  the  smaller  ports  of  the  archipelago,  and  for  large  steam 
launches  and  tugs,  and  this  demand  seems  likely  to  continue  for  some 
time.  The  bringing  of  such  vessels  here  would  result  in  the  increased 
use  of  imported  goods  through  the  consequent  cheaper  rates  at  which 
the}'  could  be  placed  on  the  market,  and  at  the  same  time  would  yield  a 
handsome  profit  to  their  owners. 

American  exporting  houses  can  not  be  too  strongly  urged  to  stud}^ 
carefully  the  Philippine  market  and  to  familiarize  themselves  with  the 
tastes  and  prejudices  of  the  people  rather  than  to  ship  their  goods  here 
haphazard  and  take  chances  on  their  proving  acceptable. 

It  is  believed  that  this  country  will  eventually  afford  a  good'market 
for  American  agricultural  implements  and  machinery.  Agriculture 
is  in  its  infancy  here,  and  the  tools  and  machinery  in  use  are,  for  the 
most  part,  crude  in  the  extreme.  While  there  are  some  steam  sugar 
mills  in  Luzon  and  Negros,  yet  the  machinery  employed  is  out  of  date 
when  compared  with  that  in  use  in  the  Hawaiian  Islands.  In  very 
manj'  instances  cane  is  still  crushed  between  stone  or  wooden  rollers 
turned  by  draft  animals.  If  sugar  can  be  advantageously  grown  and 
marketed  with  such  machinery  and  methods  as  are  at  present  employed, 
it  is  certain  that  profits  would  be  enormously  increased  were  thor- 
oughly modern  machinery  and  methods  to  be  introduced. 

For  the  successful  cultivation  of  large  sugar  estates,  steam  plows 
must  be  employed  in  considerable  numbers.  The  sugar  land  is  admi- 
rably adapted  for  their  use,  being  for  the  most  part  level  and  free  from 
stones.  The  water  buffalo,  which  is  at  present  used  for  plowing,  is  a 
ver}'-  unsatisfactory  sort  of  draft  animal  at  the  best,  while  the  mortal- 
ity among  buffaloes  from  rinderpest  has  recently  reached  60  to  80  per 
cent  of  the  total  number  in  many  provinces.  Other  epidemics  of  rinder- 
pest in  the  past  have  produced  similar  or  worse  results.  In  many  prov- 
inces the  people  have  been  unable  to  plant  their  crops  during  the 
present  season  through  lack  of  draft  animals  for  plowing,  and  were 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  75 

steam  plows  available  now  their  owners  might  make  handsome  profits 
by  breaking  up  land  at  a  fixed  price  per  acre. 

The  plows  now  in  common  use  are  wretched  affairs,  and  the  harrows 
are  little  better.  Such  things  as  our  disk  harrows,  horse  cultivators, 
etc.,  are  entirely  unknown.  There  are  no  good  hoes  to  be  had  in  the 
islands,  the  implements  in  common  use  being  more  like  adzes. 

Native  planters  are  already  more  or  less  alive  to  the  necessity  of 
portable  tramways  for  bringing  cane  to  their  crushes,  and  some  of  the 
more  important  sugar  plantations  have  them,  but  there  will  be  need 
of  many  more. 

The  Filipinos    are  to  a  considerable  extent  an  imitative  people.  ■ 
Were  modern  implements  and  sugar  machinery  of  the  sort  mentioned 
to  be  simply  placed  upon  the  market  and  offered  for  sale  here,  they 
would  probably  not  purchase;  but  were  a  few  modern  sugar  estates 
established  here,  native  planters  would  be  quick  to  appreciate  the  advan 
tages  of  improved  machinery  and  implements. 

Similarly,  the  methods  employed  in  planting,  cultivating,  and  har- 
vesting rice  are  of  the  crudest.  The  rice  is  planted  and  harvested  by 
hand.  Most  of  it  is  threshed  under  the  feet  of  men  or  animals.  The 
hull  is  removed  by  pounding  in  wooden  mortars,  and  winnowing  is 
usually  accomplished  by  tossing  up  grain  and  chaff  in  flat  wooden 
baskets  and  allowing  the  wind  to  carry  the  chaff  away.  Improvement 
in  the  method  of  harvesting  and  in  the  implements  used  for  the  purpose 
is  most  important,  as  quantities  of  rice  often  spoil  in  the  fields  at  har- 
vesting time  for  lack  of  sufficient  labor;  while  portable  threshing, 
pearling,  and  winnowing  machinery  would  speedily  find  its  way  into 
general  use.  A  large  steam  pearling  mill  recently  established  on  the 
line  of  the  Manila  and  Dagupan  Railway  proved  a  very  profitable 
investment. 

The  amount  of  drugs  and  chemicals  imported  is  considerable  and 
will  increase.  American  exporters  will  have  to  compete  with  the 
German  trade,  but  they  ought  to  be  able  to  do  so  successfully.  It 
would  seem  that  there  was  an  especially  good  opportunity  for  the 
importation  of  manufactured  drugs  in  the  form  of  pills, pellets,  etc., 
which  hardly  exist  in  the  market  to-day. 

American  horses  have  done  quite  well  here  when  fed  on  imported 
hay  and  grain,  but  mules  have  done  better.  There  can  be  no  doubt 
that  the  mule  is  the  most  satisfactory  draft  animal  which  has  ever  been 
introduced  into  this  country,  and  is  destined  to  supplant  the  compara- 
tively weak  and  slow-moving  water  buffalo  on  large  estates. 

It  is  believed  that  the  market  for  wheat  flour  will  greatly  increase 
with  the  return  of  prosperity  to  these  islands  and  the  proposed  reduc- 
tion in  the  duty  on  it.  The  natives  like  bread  when  they  once  become 
accustomed  to  it,  and  the  probable  shortage  of  rice  during  the  coming 
year  will  lead  to  the  more  extended  use  of  flour. 


76  REPORTS    OF    THK    CIV II.    OOVERNMENT 

It  is  considered  certain  that  there  will  ])c  a  heavy  increase  in  impor- 
tations of  American  preserved  meats  and  canned  fruits  and  vegetables, 
although  some  very  good  canned  fruits  are  at  present  imported  from 
Spain.  There  will  be  a  market  for  these  commodities  in  provincial 
towns  where  they  have  been  introduced  by  the  troops,  and  it  is  confi- 
dently anticipated  that  changes  in  the  tariff  law,  which  will  enable  the 
marketing  of  them  at  a  materially  reduced  price,  will  greatly  increase 
their  sale. 

The  people  of  these  islands  are  very  fond  of  jewelry,  which  should 
be  somewhat  gaudy  to  suit  their  taste.  The  watches  at  present  mar- 
keted here  have,  as  a  rule,  showy  cases  and  dials  and  wretchedly  poor 
works.  It  is  not  uncommon  to  find  a  native  with  a  collection  of  a 
dozen  watches,  none  of  which  will  go.  Good  American  watches,  with 
suitable  dials  and  cases,  ought  to  supplant  the  cheap  affairs  which  at 
present  monopolize  the  market  here. 

These  islands  produced  cotton  in  some  quantity  before  the  days  of 
the  Spanish  Government  tobacco  monopoly,  when  the  cultivation  of 
cotton  necessarily  fell  into  neglect.  It  is  now  raised  in  a  very  small 
way  in  some  of  the  northern  provinces  of  Luzon,  but  tobacco  is  still 
the  important  crop  in  this  region,  and  the  people  are  slow  to  abandon 
an  industry  which  is  yielding  them  steady  returns  and  embark  in  a 
new  one  with  which  they  are  not  familiar,  so  that  it  is  hardly  likely 
that  there  will  be  much  increase  in  the  local  cotton  crop  in  the  near 
future.  It  can  be  profitably  woven  into  fabrics  here,  however,  on 
account  of  the  abundance  of  suitable  and  cheap  labor,  and  the  Com- 
mission is  informed  that  there  are  several  projects  on  foot  for  the 
establishment  of  extensive  cotton  mills  in  the  islands,  those  interested 
intending  to  import  American  raw  cotton. 

Cotton  cloth  is  one  of  the  most  important  imports,  and  it  would 
seem  thut  there  is  no  good  reason  why  there  should  not  be  a  good 
market  for  American  goods.  The  German  cloth  at  present  brought 
into  the  islands  looks  well  in  the  piece,  but  is  very  heavily  clayed, 
poorly  colored,  and  of  inferior  quality.  The  English  cotton  fabrics 
are  of  better  quality,  but  are  also  claj^ed.  The  new  customs  tariff'  will 
be  so  adjusted  as  to  place  honest  goods  at  a  considerable  advantage, 
and  American  manufactures  will  thus  be  favored. 

It  is  particularly  important  that  the  tastes  of  the  natives  should  be 
studied  and  met.  When  cotton  goods  of  a  certain  kind  have  once 
proved  acceptable  and  have  come  into  general  use,  the  call  for  them  is 
steady,  and  the  natives  are  apt  to  insist  on  having  the  particular  qual- 
ity and  pattern  with  which  they  are  familiar  rather  than  something 
else  which  may  be  quite  as  good  or  even  better,  so  that  the  difficulty 
comes  in  the  initial  introduction  of  the  goods. 

The  iron  and  steel  used  in  the  Philippines  must  be  imported  for  some 
time  to  come,  for,  although  there  are  very  extensive  deposits  of  tine 


OF    THE    I'HILIPPINE    ISLANDS,   1900-1903.  77 

iron  ore  in  some  of  the  islands,  their  development  must  be  preceded 
by  the  development  of  the  coal  fields. 

A  number  of  electric  or  steam  railway  lines  are  projected,  and  sev- 
eral of  them  will  doubtless  be  built  as  soon  as  concessions  can  be  secured. 
This  will  create  a  market  for  railway  iron  and  rolling  stock. 

There  should  be  a  good  market  here  for  tanned  hides  and  for  the 
manufacture  of  leather.  The  leather  obtained  by  tanning  the  hides  of 
water  buffaloes  is  porous  and  soon  rots  in  this  moist  climate;  in  fact, 
leather  of  any  sort  lasts  a  comparatively  short  time.  It  is  chiefly  used 
at  present  for  harnesses,  carriages,  and  boots  and  shoes.  American 
boots  and  shoes  are  as  yet  hardly  to  be  had  here,  but  should  find  a 
ready  sale.  The  natives  are  very  fond  of  patent-leather  and  other 
showy  shoes  for  state  occasions,  and  although  they  may  not  use  them 
enough  to  wear  them  out  rapidly,  the  climate  makes  comparatively 
short  work  of  them.  The  tastes  of  the  people  should  be  consulted  by 
our  exporters  and  suitable  lasts  made,  as  shoes  shaped  on  American 
lasts  would  hardly  be  suited  to  the  feet  of  these  people.  Many  of  the 
shoes  at  present  used  are  made  here  by  Chinese  cobblers.  Those  that 
are  imported  come  chiefly  from  Spain  and  Germany. 

There  will  be  a  steadily  increasing  call  for  American  electric  machin- 
ery. At  present  Manila  is  the  only  city  in  the  islands  which  has 
electric  lights,  the  small  plant  at  Iloilo  having  been  burned.  There 
are  no  electric  railways  in  the  islands,  and  it  seems  certain  there  will 
be  a  great  future  for  them  here. 

Hand  sewing  machines  are  in  steady  demand.  The  bulk  of  the 
machines  imported  during  the  past  year  have  come  from  Germany. 
The  German  machines  are  cheap,  but  not  good.  Cheap  and  well-made 
American  machines  ought  to  drive  them  out  of  the  market. 

The  Filipinos  are  born  musicians,  and,  under  normal  conditions,  buy 
a  good  many  pianos.  Instruments  intended  for  use  in  these  islands 
should  be  so  constructed  so  as  to  resist  dampness.  Other  musical 
instruments  are  sold  in  some  numbers.  At  present  the  bulk  of  them 
come  from  Germany. 

There  are  considerable  importations  of  paints  and  colors,  but  those 
in  use  here  are,  for  the  most  part,  very  poor.  The  largest  shipments 
received  are  from  Hongkong,  so  that  it  is  not  possible,  from  the  cus- 
toms returns,  to  ascertain  the  countries  from  which  they  originally 
come.  Germany  and  England  seem  to  be  the  largest  direct  exporters 
to  this  country. 

American  edged  tools  are  proving  very  acceptable  to  the  people 
here,  and  the  market  for  them  is  steadily  growing. 

Petroleum  is  one  of  the  most  important  imports.  It  has  been  sub- 
ject to  an  extremely  high  tariff,  which  will  be  materially  reduced  in 
the  near  future.  The  Manila  representative  of  the  Standard  Oil 
Company  states  that  he  will,  reduce  the  price  of   oil  by  whatever 


78  UKTOUTS    OF    TIIK    CIVIL    (U)VKRNMENT 

amount  may  be  removed  f  I'om  the  existing*  duties.  He  expresses  the 
convietion  that  a  reduction  of  20  cents  per  case  in  the  present  market 
price  would  triple  its  use  here.  The  steady  increase  in  the  price  of 
cocoanut  oil  makes  it  cheaper  in  the  end  for  the  natives  to  sell  their 
cocoanut  oil  and  buy  petroleum  to  light  their  dwellings  and  towns.  A 
heavy  increase  in  the  importations  of  petroleum  is  confidently  to  be 
anticipated. 

There  is  a  steady  demand  for  liuttcr,  cheese,  and  refrigerated  meats, 
and  it  is  likely  to  continue. 

It  is  believed  that  a  market  might  be  developed  here  for  California 
wines.  At  present  the  largest  importations  of  wines  come  from 
Spain. 

Bicycles  are  being  imported  in  constantly  increasing  numbers,  and 
the  market  for  them  is  sure  to  grow  steadily  better.  European  bicy- 
cles were  introduced  about  1890,  but  were  purchased  only  by  wealthy 
residents,  and  the  total  number  reached,  it  is  said,  was  only  about  200. 
Last  year  American  bicycles  were  introduced,  and  there  are  now  some 
2,000  of  them  in  this  city  alone.  Projected  improvements  in  the  roads 
ought  to  exert  a  strong  influence  on  the  sale  of  bicycles.  The  demand 
for  tires  will  be  disproportionately  large,  as  rubber  does  not  last  well 
in  this  climate. 

At  present  prices  it  would  seem  that  American  coal  might  be 
imported  at  a  fair  profit,  if  it  were  shipped  direct.  The  increase  in 
the  coasting  trade  and  in  the  import  and  export  trade  which  is  confi- 
dently to  be  anticipated,  the  establishment  of  factories  and  sugar  mills, 
the  construction  of  new  railways,  the  establishment  of  electric-light 
plants,  refrigerating  plants,  etc.,  will  create  a  constantly  increasing 
demand  for  coal.  While  the  coal  fields  of  these  islands  are  extensive, 
they  are  as  yet  undeveloped,  and  their  development  will  take  both  time 
and  capital. 

PUBLIC    HEALTH. 

It  is  believed  by  this  Commission  that  no  tropical  islands  in  the 
world  enjoy  a  better  climate  than  do  the  Philippines.  While  this  is 
true,  two  classes  of  diseases  have  to  be  reckoned  with  here.  These 
are,  first,  diseases  common  to  temperate  and  tropical  countries,  and, 
second,  diseases  especially  characteristic  of  the  latter  regions.  Under 
the  former  head  would  fall  smallpox,  choltra,  bubonic  plague,  and 
leprosy.  Smallpox  is  endemic  in  these  islands.  The  natives  have 
very  little  fear  of  it,  and  are  apt  to  neglect  the  necessary  precautions 
to  prevent  its  spread,  unless  compelled  to  adopt  them.  Experience 
has  shown,  however,  that  it  can  be  stamped  out  by  thorough  vaccina- 
tion. A  particularly  effective  virus  is  obtained  from  the  water  buffalo 
in  a  laboratory  established  at  Manila  for  this  purpose  by  Dr.  Frank  S. 
Bourns.     Similar  laboratories  will  be  established  at  convenient  points 


fmt. 


0¥    THE    PHILIPPINE    ISLANDS,    1900-1903.  79 


thj  oughout  the  archipelago  and  a  vigorous  attempt  made  to  vaccinate 
the  whole  population. 

There  have  been  more  or  less  destructive  epidemics  of  Asiatic  chol- 
era in  the  Philippines  in  the  past,  but  they  have  occurred  at  long 
intervals.  The  last  was  in  1888-89.  Cholera  has  not  appeared  in  the 
islands  since  that  time,  but  we  are  near  China,  which  is  a  breeding 
ground  for  disease,  and  danger  from  epidemics  imported  from  that 
country  can  be  avoided  only  by  the  maintenance  of  a  strict  quarantine 
service. 

Bubonic  plague  appeared  in  Manila  in  December,  1899,  but  has 
never  made  any  considerable  headway.  The  largest  number  of  cases 
in  any  one  week  was  17,  and  the  largest  number  of  deaths  14.  The 
disease  was  almost  entirely  confined  to  Chinese  and  natives.  At  the 
present  time  rare  sporadic  cases  occur  at  long  intervals.  The  suc- 
cess which  has  been  met  with  in  holding  it  in  check  bears  eloquent 
testimony  to  the  efficiency  of  our  quarantine  service  and  of  the  Manila 
board  of  health,  and  is  in  striking  contrast  with  what  has  taken  place 
in  the  neighboring  port  of  Hongkong. 

No  systematic  effort  has  ever  been  made  to  stamp  out  leprosy  in 
these  islands.  There  is  a  leper  hospital  at  Manila  and  another  at  Cebu, 
but  there  has  never  been  any  comprehensive  plan  for  segregating 
those  afflicted  with  this  disease.  This  state  of  affairs  should  be  rem- 
edied. The  military  authorities  have  already  undertaken  the  inspec- 
tion of  the  smaller  islands  of  the  archipelago  with  a  view  to  the  selec- 
tion of  one  suited  to  the  needs  of  a  leper  colony  and  the  ultimate 
isolation  there  of  all  lepers.  This  is  a  matter  of  considerable  impor- 
tance, and  as  soon  as  a  suitable  site  shall  have  been  decided  upon  the 
necessary  legislation  will  be  enacted. 

We  now  come  to  a  class  of  diseases  which,  while  not  confined  to  the 
tropics,  are  apt  to  occur  in  their  severest  and  most  dangerous  form  in 
hot  countries,  such  as  diarrhea,  dysentery,  malarial  troubles,  and  beri- 
beri. While  many  of  the  islands  of  this  group  are  extremely  health- 
ful, they  vary  widely  in  this  particular,  as  do  different  localities  on  the 
same  islands.  Mindoro  and  Balabac,  for  instance,  have  a  deservedly 
bad  reputation,  while  Sibuyan,  Guimaras,  Siquijor,  and  Cebu  are  con- 
sidered especially  healthful. 

That  health  conditions  are,  on  the  whole,  surprisingly  good  in  the 
Philippines  is  conclusively  demonstrated  by  comparing  the  sick  reports 
of  our  troops  while  in  camp  in  the  United  States  with  the  reports  for 
the  time  during  which  they  have  been  engaged  in  active  service  in  the 
Philippines. 

While  it  may  be  confidently  anticipated  that  the  establishment  of  a 
well -organized  department  of  public  health  in  these  islands  will  lead 
to  a  general  improvement  in  sanitary  conditions,  it  will  doubtless 
remain  true  that  troops  which  are  forced  to  campaign  in  the  dam£ 


80  REPORTS    OF    THE    CIVIL    CiOVKKNMENT 

lowlands,  or  to  garrison  towns  which  have  sprung  up  in  situations 
where  towns  should  never  have  been  built,  will  sull'cr  more  or  less 
sovoroly  from  diarrhea,  dysentery,  and  malaria.  Beri-l)cri  is  com- 
mon among  the  natives  of  certain  localities,  but  very  seldom  attacks 
our  soldiers. 

In  the  treatment  of  these  last-mentioned  ailments  it  is  well  known 
that  a  suitable  change  of  climate  is  often  far  more  effective  than  are 
any  drugs  which  can  be  administered. 

Recuperation  from  severe  wounds  or  wasting  diseases  takes  place 
slowly  in  this  tropical  region.  Thus  far  it  has  proved  necessary  to 
send  a  considerable  number  of  sick  soldiers  either  to  Japan  or  to  the 
United  States  for  recuperation.  This  involves  very  heavy  expense 
and  frequently  loss  of  life  as  well,  for,  even  with  the  most  perfect 
transports  and  hospital  ships,  it  is  impossible  during  a  rough  sea  voyage 
to  give  sick  men  the  care  which  they  can  have  on  land. 

Experience  has  shown  that  an  occasional  change  to  a  cooler  climate 
is  very  desirable,  even  for  those  who  live  in  the  more  healthful  parts 
of  the  archipelago.  Especially  is  this  true  of  white  children,  who 
usually  do  very  well  here  up  to  the  age  of  8  or  10  years,  and  then  often 
seem  to  require  a  change. 

In  view  of  the  facts  above  set  forth,  it  becomes  a  matter  of  great 
practical  importance  to  ascertain  whether  or  not  there  exists  within 
the  limits  of  the  archipelago  any  accessible  region  presenting  suitable 
climatic  and  other  conditions  for  the  speedy  recuperation  of  sufferers 
from  wounds,  tropical  diseases,  wasting  illnesses  of  any  sort,  or  from 
the  injurious  effects  of  long-continued  residence  in  a  hot  climate. 

Such  a  region  should  have  cool,  pure,  bracing  air  and  a  plentiful 
supply  of  good  water.  It  should  be  sufficiently  extensive  to  allow  of 
the  erection  of  hospitals  for  the  sick  and  of  summer  homes  for  a  con- 
siderable population.  It  should,  if  possible,  be  suited  to  the  pasturing 
of  cattle  and  the  growing  of  fruits,  vegetables,  and  grains. 

It  is  a  well-established  fact  that  no  such  region  exists  in  the  central 
or  southern  islands  of  this  archipelago,  with  the  possible  exception  of 
Mindanao. 

Mindoro  has  very  unhealthful  lowlands,  and  although  several  moun- 
tain chains  extend  outward  from  Mount  Halcon,  which  is  one  of  the 
highest  peaks  in  the  archipelago,  there  is  no  elevated  plateau  or  table- 
land. With  the  exception  of  Mount  Halcon,  the  rocky  summit  of 
which  rises  above  the  tree  line,  the  mountains  are  covered  with  dense 
vegetation  to  their  very  tops. 

The  islands  of  Romblon,  Sibuyan,  Panay,  Guimaras,  Negros,  Mas- 
bate,  Burias,  Ticao,  Siquijor,  Bohol,  Cebii,  Samar,  Le3^te,  Marinduque, 
Catanduanes,  Basilan,  and  Palawan  all  have  hills  or  mountains,  which 
are  in  some  instances  low,  in  others  of  very  considerable  height.  For 
tiie  most  part,  they  end  like  the  mountains  of  Mindoro  in  sharp  peaks 


OF    THE    PHILIPPINE    ISLANDS,    1!)00-1903.  81 

or  narrow  forest-covered  ridges,  and  in  no  one  of  these  islands  is  there 
an  extensive,  open,  and  sufficiently  elevated  table-land  or  i^lateau. 

The  great  island  of  Mindanao  is  still,  to  a  considerable  extent,  a 
terra  incognita,  but  Jesuit  priests  have  carried  on  quite  extensive 
explorations  in  its  interior.  The  result  has  been  the  discovery  of 
long  chains  of  high  mountains,  but,  so  far  as  the  Commission  is  able 
to  ascertain,  no  elevated  table-land  has  as  yet  been  found,  nor  does  it 
seem  probable  that  any  exists.  An  expedition  which  climbed  nearly 
to  the  top  of  Mount  Apo,  believed  to  be  the  loftiest  peak  in  the  Phil- 
ippines, found  it  covered  with  the  densest  vegetation,  and,  apart  from 
its  inaccessibility,  wholly  unsuited  for  a  health  resort. 

Luzon  remains.  While  the  mountains  in  the  provinces  south  of 
Manila  and  in  Laguna,  Infanta,  Bulacau,  Bataan,  Zambales,  and 
Tarlac  are  of  the  character  already  described  for  the  central  and 
southern  islands  and  are  therefore  unsuited  to  the  purpose  in  question, 
it  has  long  been  known  that  in  northern  Luzon  there  are  extensive 
highland  regions  with  a  strictly  temperate  climate,  which  have  the 
great  advantage  of  being  within  comparatively  easy  reach  of  Manila, 
the  largest  city  of  the  islands  and  the  center  of  all  important  lines  of 
communication  for  the  archipelago. 

BENGUET   AS   A   HEALTH   RESORT. 

The  southernmost  of  these  regions,  and  therefore  the  most  accessi- 
ble from  Manila,  is  comprised  in  the  province  of  Benguet.  For  a 
somewhat  detailed  description  of  the  topographical  characteristics  of 
this  province  reference  is  made  to  exhibit  "The  Igorrotes  of  Ben- 
guet." Baguio,  the  present  capital  of  the  province,  is  about  132  miles 
from  Manila  in  a  straight  line.  By  the  Manila  and  Dagupan  Railway 
to  the  town  of  Dagupan,  and  by  the  shortest  practicable  route  for  a 
railroad  from  this  point  to  Baguio,  the  distance  is  about  177  miles. 

The  Spaniards  were  familiar  with  the  remarkable  climatic  condi- 
tions found  in  Benguet,  and  before  the  departure  of  the  Commission 
from  the  United  States  the  essential  facts,  which  were  matter  of  com- 
mon report  in  Manila,  were  brought  to  your  attention.  In  obedience 
to  your  verbal  instructions  the  Commission,  soon  after  its  arrival  here, 
undertook  to  obtain  full  and  accurate  information  as  to  the  suitable- 
ness of  Benguet  as  a  health  resort. 

As  a  preliminary  step  to  this  end  a  thorough  search  of  the  old  Span- 
ish archives  was  made,  with  a  view  to  gathering  together  all  available 
data.  It  was  soon  learned  that  a  very  full  and  extensive  report  had 
been  published  by  a  Spanish  commission  consisting  of  Don  Henrique 
Hore,  colonel  of  artillery;  Don  Rafael  de  Arilar  y  Castafieda,  major 
of  engineers,  and  Don  Elias  Con  y  Tres,  first  surgeon  of  the  military 
department,  sent  by  General  Blanco  to  report  on  the  cUmatic  and  health 
conditions  of  this  province. 
23181—04 6 


82  UKroUTS    OF    THE    CIVIL    OOVKKNMKNT 

A  i-arot'ul  st'im-h  of  the  aroliivos  made  it  evident  that  all  the  original 
copies  of  this  report,  of  which  there  were  three,  had  ))een  removed; 
but  wo  evcntuall}'  ascertained  that  it  had  been  published  in  full  in  a 
Spanish  medical  journal  and,  through  the  courtesy  of  the  Jesuit 
fathers  and  of  Dr.  Joaquin  Gonzales,  the  Connnission  secured  posses- 
sion of  nearly  the  full  text.  This  report  is  a  very  extensive  document, 
discussing  at  length  the  desirability  of  a  military  sanitarium  to  be 
erected  at  some  place  with  suitable  climatic  conditions,  and  then  going 
on  to  demonstrate  that  the  township  of  Baguio,  in  the  province  of 
Benguet,  is  such  a  place. 

It  enters  into  an  elaborate  discussion  of  the  geographical  situation 
of  this  township,  its  topography  and  the  means  of  communiipation  with 
it,  the  character  of  its  soil,  seismic  phenomena,  products;  fauna,  and 
climatic  conditions,  including  atmospheric  pressure;  temperature, 
prevailing  winds,  humidity,  rainfall,  frequency  of  clouds,  electric 
phenomena,  and  number  and  length  of  storms.  The  sources  of  water 
supply  are  discussed  and  shown  to  be  adequate.  Thermal  mineral 
springs  are  also  described.  There  is  some  description  of  the  native 
Igorrotes,  with  measurements,  and  an  attempt  at  determining  the 
death  rate  among  them  and  the  causes  of  death. 

There  follow  general  conclusions  from  the  data  obtained,  with  a 
discussion  of  the  probable  physiological  effects  of  the  conditions  found. 
The  translation  of  this  report  is  forwarded  herewith  as  Exhibit  H. 

While  the  original  document  is  diffuse  and  somewhat  bombastic  in 
style,  it  nevertheless  contains  a  great  deal  of  valuable  information. 
The  data  as  to  temperature  and  humidity,  secured  during  the  sixty 
days'  sojourn  of  the  Spanish  commission  at  Baguio,  were  of  so  sur- 
prising a  character  as  to  suggest  reasonable  doubt  concerning  their 
accuracy. 

In  view  of  the  importance  of  the  question  at  issue  it  was  decided 
that  nothing  short  of  personal  investigation  could  satisfactorily  settle 
the  matter.  Commissioners  Wright  and  Worcester  were  appointed  a 
committee  to  gather  all  available  information  on  the  subject,  and  were 
directed  by  the  Commission  to  proceed  to  the  province  of  Benguet  and 
investigate  the  conditions  existing  there. 

Their  report,  which  is  given  in  full  as  Exhibit  D,  demonstrates  con- 
clusively that  in  the  vicinity  of  the  town  of  Baguio  there  exists  an 
extensive  region  admirably  suited  to  serve  as  a  health  resort  for 
these  islands  and  for  the  neighboring  China  coast. 

They  found  an  extensive  highland  region,  peopled  by  a  friendly, 
harmless  tribe;'  with  pure,  cool,  invigorating  air  and  abundant  water; 
free  from  tropical  vegetation;  affording  pasturage  in  plenty,  and 
suited  to  the  production  of  many  of  the  fruits,  vegetables,  and  grains 
characteristic  of  the  temperate  zone.^ 

^See  Exhibit  F,  "The  Igorrotes  of  Benguet." 
^See  Exhibit  G,  "Agricultural  notes  on  Benguet." 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903. 


83 


They  took  with  them  a  trained  meteorological  obacrver,  who  will  be 
kept  at  Baguio  until  the  latter  part  of  next  May,  when  his  records, 
together  with  those  of  the  Spanish  commission,  previously  referred 
to,  will  cover  every  month  of  the  year. 

Detailed  meteorological  data  for  the  months  of  August,  September, 
and  October  have  already  been  received,  and  will  be  found  set  forth  in 
tabular  form  in  the  report  of  this  committee  above  referred  to. 

The  remarkable  character  of  the  climate  of  Benguet  will  be  better 
appreciated  if  a  brief  comparison  is  made  between  it  and  the  climate 
of  Manila. 

Comparison  between  the  temperature,  relative  humidity  of  the  atmosphere,  and  rainfall  at 
Baguio  and  Manila  during  the  montfis  of  August,  September,  and  October,  1900. 


August. 

September. 

October. 

Manila. 

Baguio. 

Differ- 
ence. 

Manila. 

Baguio. 

Differ- 
ence. 

Manila. 

Baguio. 

Differ- 
ence. 

Temperature. 

0 

9.5.3 
72.4 
81.4 
87.0 
75.8 
17.2 
4.9 
11.3 

95.0 
81.0 
86.9 
Inches. 
28.5 

76.8 
59.0 
66.9 
69.3 
63.5 
12.6 
0.9 
5.46 

97.4 
83.6 
91.6 
Inches. 
37.04 

18.5 
13.4 
15.5 
17.7 
12.3 
4.6 
4.0 
6.84 

2.4 

2.6 

4.7 

Inches. 

8.54 

91.1 
72.7 
81.5 
87.0 
75.6 
15.6 
3.9 
11.5 

93.3 

78.3 

86.3 

Inches. 

11.32 

o 
76.6 
61.2 
66.9 
71.5 
63.2 
13.7 
0.9 
7.88 

96.6 
81.8 
89.4 
Inches. 
12.16 

14.5 
11.5 
14.6 
16.5 
12.4 
1.9 
3.0 
3.62 

2.3 
3.5 
3.1 
Inches. 
0.84 

91.8 
71.3 
81.0 
88.0 
73.0 
20.1 
4.7 
15.3 

96.4 

72.6 

83.2 

Inches. 

6.9 

75.9 
56.8 
67.4 
72.4 
62.1 
16.2 
6.2 
10.28 

92.0 

70.2 

83.1 

Inches. 

4.96 

15.9 

14.5 

13.6 

Mean  daily  maximum 

Mean  daily  minimimi 

Greatest  daily  variation  — 

Least  daily  variation 

Mean  daily  variation 

Humidity. 

Maximum 

16.6 
10.9 
3.9 
1.6 
5.02 

4.4 

2.4 

Mean 

0.1 

Rainfall 

Inches. 
1.94 

These  facts  speak  for  themselves.  It  is  hard  to  conceive  of  a  region 
affording  a  more  delightful  temperature  than  Baguio,  where  it  is 
always  cool  and  yet  never  cold.  The  highest  temperature  recorded 
during  August,  September,  and  October  is  76.8°.  The  observations 
of  the  Spanish  commission  began  on  the  24th  day  of  May  and  lasted 
until  the  22d  day  of  July,  the  maximum  temperature  recorded  during 
this  period  being  75.2°.  These  data,  taken  together  with  those  secured 
by  us,  cover  the  hottest  part  of  the  year,  and  the  absolute  maximum 
temperature  is  probably  very  close  to  77°.  From  the  best  available 
data  it  would  seem  that  the  absolute  minimum  was  about  45°.  The 
lowest  temperatures  occur  during  that  period  of  the  year  Avhen  the 
skies  are  clear  and  the  air  is  dry. 

The  mean  temperature  for  the  entire  period  covered  b}^  our  observa- 
tions was  66.86°,  that  at  Manila  was  81.3°,  giving  a  difference  of  14.44° 
in  favor  of  Baguio. 

The  minimum  temperature  recorded  by  the  Spanish  commission  for 
the  sixty  days  of  their  observations  was  52.7°,  and  the  mean  tempera- 
ture was  65.66°. 

A  striking  feature  of  the  temperature  at  Baguio  is  its  uniformity, 
the  greatest  daily  variation  recorded  for  the  three  months  being  13.7° 


84 


KKTOKTS    OK    'I'llK    CIVIL    (}(>^•  IIUNMENT 


aiul  the  Irtist  daily  variation  boiny-  nim'-tentlisol"  a  dog-rcc.  At  Manila 
the  greatest  daily  variation  during  the  same  period  was  20.1°  and  the 
least  was  3.9°.  The  mean  daily  variation  foi  the  three  months  at 
Manila  was  12.6°  and  at  Bagnio  was  7.87°,  or  •1.73°  less  than  at  Manila. 

The  bracing-  character  of  the  atmosphere  is  attested  by  everyone  who 
has  visited  the  province  of  Benguet,  and  its  purity  is  shown  by  the  fact 
that  fresh  meat  keeps  without  ice  for  from  three  to  six  days,  accord- 
int»-  to  the  season.  This  last  fact  is  of  especial  significance  in  connec- 
tion with  surgical  operations  and  the  treatment  of  wounds. 

Our  record  shows  that  the  relative  humidity  was  slightly  greater 
at  Baguio  during  the  months  of  August  and  September  than  at  Manila, 
but  during  the  month  of  October  was  0,1  degree  less.  The  rainfall 
was  greater  at  Baguio  during  August  and  September,  but  was  less 
during  October. 

In  considering  rainfall  and  humidity  it  should  be  remembered  that 
an  unusually  large  number  of  typhoons  were  felt  in  Northern  Luzon 
during  the  period  in  question,  and  that  one  crossed  the  island  just  to 
the  southward  of  Benguet.  These  storms  are  almost  invariably  accom- 
panied by  heavy  and  long-continued  rain  and  by  extreme  moisture. 
The  dry  season  has  now  begun  at  Baguio,  and  rainfall  and  humidity 
will  probably  be  less  there  during  the  present  month  than  at  Manila. 

In  this  connection  it  may  be  worth  while  to  insert  a  brief  table, 
borrowed  from  the  report  of  the  Spanish  commission,  in  which  a  com- 
parison is  made  between  the  temperature,  relative  humidity,  and 
rainfall  for  the  year  at  Baguio  and  Manila: 


Yearly. 


Maximum  lempeniturc °  F- 

Miniiuiim  temperature do. . , 

Mean  temperature .do. . , 

Mean  barometric  pressure - inches. , 

Relative  humidity— mean  degree do. . 

Days  of  rain— mean  number do . . 

Quantity  of  rainfall do... 


Manila. 


96.8 

75.2 

60.8 

46.4 

77.0 

62.6 

29.7 

25.2 

64 

60 

160 

160 

78  to  118 

59  to  78 

Baguio. 


There  is  nothing  in  the  report  of  this  Commission  to  show  that  their 
observations  extended  over  a  longer  period  than  the  sixtv  days  of 
which  we  have  the  detailed  record,  but  the  Commission  has  been 
informed  by  Col.  Cristobal  de  Arilar,  a  brother  of  Col.  Rafael  de 
Arilar,  who  was  a  member  of  this  Spanish  commission,  that  the  latter 
gentleman  remained  at  Baguio  for  nine  months,  taking  full  observa- 
tions throughout  this  entire  period.  It  is  inferred  that  his  results 
form  the  basis  of  the  comparison  made  in  this  table. 

It  would  seem  that  not  only  is  the  temperature  much  lower  and 
more  uniform  at  Baguio  than  at  Manila,  but  the  rainfall  and  relative 
humidit}^  are  materiall}^  less  as  well.  Baguio  is  especially  well  situ- 
ated to  escape  fogs,  which  are  infrequent,  considering  the  altitude,  as 


Mean  Daily  Temperature  at  Manila  and  BAGufo,  based  on  the  Observations 

MADE  DURING  AUGUST,  SEPTEMBER,  AND  OCTOBER,   1900. 


12 
mn 

4              6             8             10            12             2           4              6            Q\^ 
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OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  85 

will  appear  from  the  meteorological  tables  in  Exhibits  D  and  H.  The 
Spanish  commission  found  that  during  the  period  over  which  their 
observations  extended  rain  lasting  throughout  the  day  was  very 
exceptional;  and  our  own  observations,  which  cover  the  verj^  worst 
part  of  the  year,  fully  confirm  this  view.  In  the  large  majorit}^  of 
cases,  even  when  the  rains  are  heaviest,  the  mornings  are  bright  and 
clear.  There  would  therefore  seem  to  be  every  theoretical  reason  to 
believe  the  climate  of  this  part  of  Benguet  to  be  most  healthful  and 
invigorating.  This  view  of  the  case  is  fully  justified  by  the  practical 
results  actually  obtained  under  the  Spanish  regime  from  sending  per- 
sons suffering  with  chronic  diarrhea,  dysentery,  or  severe  malarial 
troubles  to  Trinidad  or  Baguio  for  recuperation.  The  Commission  has 
been  repeatedly  assured  by  those  who  knew  whereof  they  spoke  that 
the  results  in  such  cases  were  uniformly  most  satisfactory. 

It  may  be  worth  while  to  note  that  an  average  sick  list  of  but  three 
was  reported  for  the  two  companies  of  colored  troops  garrisoning 
Trinidad  at  the  time  of  the  visit  of  Commissioners  Wright  and  Worces- 
ter, while  the  American  miners  whom  they  met  were  all  in  splendid 
pnysical  condition  and  agreed  that  a  more  delightful  and  healthful 
climate  could  not  be  desired. 

In  this  connection,  reference  is  made  to  the  professional  opinion  of 
Frank  S.  Bourns,  M.  D.,  late  major  and  chief  surgeon,  U.  S.  V.,  late 
chief  health  officer  of  Manila,  and  late  professor  of  pathology  and  his- 
tology at  the  Southern  Medical  College,  Atlanta,  Ga.,  as  to  the  suit- 
ableness of  Benguet  for  a  health  resort;  also  to  the  report  on  this  subject 
by  Maj.  Louis  M.  Maus,  chief  medical  inspector  for  the  Eighth  Army 
Corps.  Major  Maus's  report  is  not  on  file  at  Manila,  but  has  been 
forwarded  to  the  Surgeon-General  at  Washington.  It  is  the  more 
interesting  from  the  fact  that  he  was  by  no  means  enthusiastic  concern- 
ing the  possibilities  of  Benguet  before  making  a  personal  investiga- 
tion into  the  facts. 

The  distinguished  physician,  Don  Elias  Con  y  Tres,  first  surgeon  of 
the  military  health  department  for  the  islands  under  the  Spanish  regime, 
after  a  thorough  discussion  of  the  physiological  effects  of  the  climate 
of  Benguet  (see  Exhibit  H,  p.  162),  concludes  that  individuals  debil- 
itated by  illness  or  the  effects  of  the  hot  climate  of  the  lowlands,  or 
with  scrofulitic  tendencies,  or  those  suffering  from  anemia,  malaria, 
inflammation  of  the  kidneys,  diseases  of  the  digestive  canal,  asthma, 
neurasthenia,  neuralgia  arising  from  malarial  troubles,  chronic  catarrhs 
of  the  bladder  and  urinary  channels,  nostalgia,  and  hypochondria  would 
be  greatl}^  benefited  and  in  many  instances  cured. 

While  the  high  relative  humidity  during  the  worst  part  of  the  rainy 
season  would  be  a  drawback  in  the  treatment  of  rheumatism,  he  con- 
cludes that  a  stay  at  Baguio  during  the  dry  season  would  be  very  use- 
ful to  those  afflicted  with  this  discnsc^,  especially  since  they  would  have 


86  REPORTS    OF    THE    CIVIL    GOVERNMENT 

the  advantage  of  natural  hot  baths.  He  expresses  the  belief  that  the 
altitude,  the  tonic  property  of  the  air,  and  the  moderate  and  uniform 
temperature  would  be  beneticial  to  consumptives. 

He  concludes  by  stating  that  many  other  pathological  states  and 
morbid  process  of  the  sort  peculiar  to  women  and  children  would  find 
a  cure,  or  at  least  noteworthy  relief,  from  a  more  or  less  lengthy'  stay 
under  the  influence  of  this  climate. 

From  what  has  already  been  said  it  would  seem  that  there  could  be 
but  one  opinion  as  to  the  desira])ility  of  making  this  wonderful  region 
accessible  b}'  a  railroad,  provided  it  can  l)e  accouiplished  hy  a  reasona- 
ble expenditure.  In  order  to  acquire  accurate  information  on  this 
subject  it  was  determined  that  a  careful  survey  should  be  made.  The 
Commission  was  fortunately  alile  to  secure  the  services  of  Capt.  Charles 
W.  Meade,  Thirty-sixth  U.  S.  Volunteers,  for  the  purpose.  He  has 
the  reputation  of  being  a  competent  engineer,  and  has  had  a  consider- 
able practical  experience  in  the  location  and  construction  of  railways 
in  the  mountainous  regions  of  California  and  other  Western  States, 
and  at  the  time  of  his  detail  for  this  duty  by  the  military  governor 
was  city  engineer  of  Manila.  He  began  the  survey  with  a  competent 
corps  of  assistants  about  two  months  since,  commencing  at  Baguio  and 
working  down  the  mountains,  following  the  valley  of  the  Bued  River, 
with  Dagupan  as  his  objective  point.  He  has  recently  made  an 
informal  report  to  the  Commission  from  which  it  appears  that  he  has 
finished  all  that  portion  of  the  survey  in  the  mountains,  and  the  only 
part  thereof  presenting  any  engineering  difficulties. 

The  line  in  from  the  foothills  to  Dagupan  runs  through  a  rolling 
country  and  a  plain.  It  crosses  no  large  streams  and  involves  no 
extraordinary  expenditure.  Captain  Meade  reports  that  the  line  from 
Dagupan  to  Baguio  will  be  about  55  miles  in  length,  with  a  maximum 
grade  of  3  per  cent,  and  that  the  portion  of  the  road  traversing  the 
mountains  will  require  a  considerable  amount  of  heavy  and  expensive 
work.  He  estimates  that  the  total  cost  of  the  55  miles  and  equipment, 
including  rolling  stock,  will  be  about  $2,500,000  gold.  He  further 
reports  that  it  will  take  from  eighteen  months  to  two  yejirs  to  complete 
it.     His  formal  report  will  be  forwarded  to  you  as  soon  as  it  is  made. 

As  a  matter  of  investment  solely,  its  construction  would  hardly  be 
warranted,  for  it  is  not  probable  that  in  the  near  future  it  would  more 
than  earn  operating  expenses,  if  so  much.  The  Commission,  however, 
urges  that  it  be  built,  purely  on  the  ground  of  the  value  of  the  Ben- 
guet  region  as  a  sanatarium  and  as  an  advisable  site  for  the  military 
and  political  capital  of  these  islands.  If  utilized  for  this  purpose, 
there  would  result  benefits  which  would  annually  more  than  reimburse 
the  Government  for  its  original  outlay,  besides  saving  valuable  lives. 
The  possibility  of  the  road's  ultimately  being  self-sustaining  and  pay- 
ing interest  ou  its  cost  is  also  not  to  be  overlooked,  although  of  sec- 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  87 

ondary  consideration.  There  are  unquestionably  in  the  neighborhood 
of  Baguio,  and  scattered  through  the  Benguet  mountains,  large  and 
rich  deposits  of  copper,  coal,  and  gold,  if  the  reports  which  come  to  the 
mining  bureau  and  to  the  Commission  are  even  in  part  true.  These 
would  be  made  accessible  and  valuable  by  this  road,  and  in  turn  would 
give  it  a  large  business.  It  could  probably  be  operated  without  loss, 
even  at  the  present  time,  in  connection  with  the  Manila  and  Dagupan 
Railway  to  the  northern  end  of  the  island.  This  line  has  been  much 
discussed,  is  not  expensive  to  build,  and  would  run  through  a  fertile 
and  densely  populated  part  of  Luzon,  and,  it  is  believed,  would  pay 
from  the  beginning. 

These  are  mere  future  possibilities,  however,  proper  to  be  pointed 
out,  but  not  intended  in  any  way  to  affect  the  recommendation  of  the 
Commission  that  the  government  should  build  a  line  from  Dagupan 
to  Baguio  as  soon  as  possible.  There  are  now,  and  will  be  for  some 
years  to  come,  many  pressing  demands  on  the  income  of  the  insular 
government  from  other  quarters,  the  more  important  of  which  are 
referred  to  in  this  report,  so  that  it  is  not  believed  it  can  afford,  with- 
out embarrassment,  at  this  time  to  appropriate  the  sum  necessary  to 
build  it.  Aid  in  some  form  from  the  General  Government  will  there- 
fore be  necessary  and,  in  the  opinion  of  the  Commission,  should  be 
extended. 

HIGHWAYS,    RAILROADS. 

As  an  instrumentality  for  the  development  of  the  great  and  varied 
resources  of  these  islands,  the  building  of  highways  and  of  steam  and 
electric  railroads  is  of  the  first  importance.  Their  value  from  a  mili- 
tary standpoint  can  hardly  be  overestimated,  and  indirectly  they  would 
only  be  second  to  primary  schools  as  an  educator  of  the  people. 

It  may  be  asserted  as  a  truism  that  a  people  without  roads  are  neces- 
sarily savage,  because  society  is  impossible;  and  just  to  the  extent  that 
roads  are  lacking  or  defective,  real  progress  is  retarded  and  prosperity 
hindered.  The  absolute  necessity  for  some  reasonably  efficient  means 
of  intercommunication  between  the  various  communities  of  these 
islands  is  therefore  self-evident  and  requires  no  discussion. 

As  may  have  been  expected,  centers  of  population  and  comparative 
wealth  are  to  be  found  at  the  seaports  and  territories  contiguous  thereto 
which  are  more  or  less  accessible  to  markets  by  means  of  water  com- 
munication, but  these  favored  localities  are  limited  in  area  and  their 
facilities  for  doing  business  are,  with  few  exceptions,  inadequate  and 
unsatisfactory.  Although  there  arc  numerous  harbors  dotting  the 
coast  line,  there  are  Imt  few  that  admit  vessels  of  heavy  draft,  and  as  a 
rule  they  are  not  landlocked  and  are  more  or  less  exposed  to  the  pre- 
vailing typhoons,  so  that  there  are  frequently  days  and  even  weeks 
during  which  ships  can  neither  load  nor  unload. 


88  KEl'v)KTS    OF    THK    CIVIL    CK) /ERNMKNT 

There  aro  nuinorous  water  courses  in  the  great  islands  of  Luzon 
and  Mindanao  which  liave  their  sources  in  the  mountains  of  the 
interior  and  flow  to  the  sea  in  rapid  and  broken  currents.  As  a 
general  rule  they  are  inconsiderable  in  volume  and  are  either  not 
navigable  at  all,  or,  if  navigable,  only  for  a  few  miles  from  their 
mouths,  so  that  they  may  be  eliminated  in  considering  the  question 
of  transportation. 

The  so-called  highwaj^s  are  generally  merely  rude  trails,  which  in 
the  rain}'  season,  lasting  half  the  year,  are  simply  impassable,  and 
during  the  drj^  season  are  rough  and  only  available  for  travel  to  a 
ver}^  limited  extent.  Whatever  may  have  been  the  motive,  the  policy 
of  the  Spanish  administration  during  all  the  years  of  its  occupancy 
seems  to  have  been  one  of  isolation.  Their  trade  laws  were  so  framed 
as  to  prevent  intercourse  with  the  rest  of  the  world  and  insure  them 
a  monopoly.  They  lacked  the  forethought  or  energy  to  construct 
extensive  lines  of  communication  with  the  interior  and  Manila  and 
the  other  important  towns  on  the  seacoast.  As  a  result  there  are  few 
natives  of  the  interior  who  have  ever  been  beyond  the  boundaries  of 
towns  in  which  they  live.  Besides,  the  numerous  tribes  of  Luzon 
speak  different  dialects,  and  it  was  only  here  and  there  in  each  com- 
munit}^  that  one  could  be  found  who  spoke  Spanish.  Such  communi- 
cation as  they  had  with  the  central  government  was  through  the 
medium  of  the  parish  priest,  who  was  generally  a  Spaniard  familiar 
with  the  native  dialects  and  who  taught  them  in  their  native  languages 
the  ver}^  little  they  knew.  It  is  not  remarkable  that  the  masses  of 
the  people  are  densely  ignorant  and  credulous  to  a  degree  that  can 
hardly  be  understood  b}'  Americans,  nor  that  they  are  easily  imposed 
upon  and  carried  away  li}^  the  most  absurd  falsehoods  as  to  our  sinister 
purpose  in  reference  to  them. 

Such  is  the  natural  richness  of  the  soil  that  the  limited  areas  acces- 
sible to  markets  exported  quite  considerably  on  vessels  plying  from 
the  small  ports  to  Manila  and  Iloilo,  but  the  scale  of  their  operations 
has  been  and  is  relatively  insignificant  as  compared  with  what  it  ought 
to  be  and  would  be  were  all  parts  of  the  island  accessible. 

The  most  serious  hindrance  to  rapid  and  effective  movements  by  our 
troops  has  been  the  inaccessibility  of  the  country  in  which  the  insur- 
gents have  hidden  themselves.  The  difficulty  has  not  been  to  over- 
come, but  to  get  at  them.  The  cost  of  militar}^  operations  under  such 
conditions  is  enormously  increased,  as  is  the  number  of  troops  required. 

As  alread}^  stated,  the  Commission,  acting  under  your  instructions, 
has  appropriated  $1,000,000  gold  for  road  building.  Whilst  the  pri- 
mary purpose  of  the  appropriation  is  to  enable  the  military  governor 
to  build  such  highways  as  are  most  needed  for  strategic  purposes, 
when  constructed  they  will  serve  as  well  for  the  gensral  uses  of  the 
people.     It  is  the  desire  of  the  ('ommissiou,  as  rapidly  a&  may  be,  to 


OF    THE    THILIPPINE    ISLANDS,    1900-1903.  89 

push  the  construction  of  substantial  and  permanent  highways  through- 
out Luzon  and  the  other  large  islands  of  the  archipelago  on  some  gen- 
eral and  comprehensive  plan,  a  large  part  of  the  cost  of  which  will  be 
borne  b}"  the  coimn unities  more  immediately  benefited. 

What  has  been  said  as  to  ordinary  highways  applies  with  addi- 
tional force  to  railroads.  The  ^lanila  and  Dagupan  Railroad,  already 
referred  to,  is  at  this  time  the  only  line  in  the  entire  island.  It  was 
constructed  by  English  capitalists  and  has  been  in  operation  since  the 
year  1892.  It  has  a  gauge  of  3  feet  and  6  inches  and  traverses  a 
rather  low-lying  fertile  region  dense!}'  populated.  It  was  perhaps 
improperl}'  located  in  the  beginning,  and  crossing  as  it  does  quite  a 
number  of  streams  near  their  mouths,  which  necessitated  much  trestle 
and  bridge  work,  was  expensive  to  construct.  This  expense  it  seems 
was  increased  by  unnecessary'  requirements  of  the  Spanish  Govern- 
ment. As  a  result  it  appears  to  have  cost  the  company  about  860,000 
gold  per  mile.  It  is  an  expensive  line  to  maintain,  by  reason  of  the 
fact  that  several  of  the  streams,  in  seasons  of  flood,  overflow  their 
banks  and  inflict  much  damage  upon  the  roadbed.  Because  of  these 
drawbacks  the  road  has  not  proved  a  profitable  investment,  but  would 
have  paid  well  on  a  reasonable  and  proper  outlay.  But  whilst  it  has 
not  earned  a  fair  interest  on  the  extravagant  sum  which  it  cost,  it  has 
been  wonderfully  beneficial  in  increasing  the  population  and  wealth  of 
the  provinces  through  which  it  runs,  and  affords  a  striking  illustration 
of  the  enormous  benefits  which  would  accrue  were  railroads  built  in 
other  sections  of  these  islands  which  are  now  wholly  or  partially 
inaccessible. 

There  are  extensive  areas  of  territory  in  the  interior  of  Luzon  and 
Mindanao  having  a  very  considerable  population  and  capable  of  pro- 
ducing tobacco,  copra,  sugar,  rice,  and  other  tropical  products  on  a 
large  scale,  which  are  wholly  without  means  of  communication  of  any 
kind  with  the  outside  world.  As  a  result,  having  no  incentive  to 
produce  more  than  enough  for  their  personal  needs,  do  not  do  so. 

There  are  still  other  portions  of  the  interior  of  these  islands,  which 
are  now  inhabited  sparselj-,  and  in  the  main  b}^  savage  tribes,  which  are 
naturally  rich  in  soil  and  minerals.  A  large  portion  of  this  territory 
is  mountainous,  and  was  only  to  a  very  limited  extent  ever  under  the 
control  of  the  Spanish  authorities.  The  mountainous  region  in  Luzon 
alone  covers  several  thousand  square  miles.  It  spreads  out  into  a  wide 
and  broken  region  interspersed  with  valleys,  well  watered,  with  good 
grazing  for  cattle,  which  are  frequently  seen  in  small  herds,  looking 
sleek  and  fat.  It  is  believed  that  ncarl}'  all  the  fruits  and  vegetables  of 
the  temperate  zone  can  be  grown  there.  The  climate  is  in  all  respects 
the  same  as  that  of  the  province  of  Benguet,  already  referred  to,  and 
would  furnish  a  habitat  for  Americans  and  Europeans,  invigorating  and 
healthful.     There  is  uuquestionaM}'  to  be  fouud  throughout  this  region, 


90  KEruKTS    OF    THE    CIVIL    GOVERNMENT 

in  more  or  less  abundance,  a  variety  of  minerals,  notal^ly  coppei ,  gold, 
coal,  and  iron.  These  mountains  seem  to  have  been  largely  terra 
incognita  to  the  Spaniards,  yet,  from  the  very  limited  investigations 
made  by  them,  and  from  reports  made  by  our  own  people,  who,  with 
characteristic  energy,  have  been  prospecting  therein  for  the  past  two 
years,  we  are  persuaded  that  certainly  there  are  large  deposits  of 
copper,  coal,  and  iron,  and  probably  gold,  which  will  richly  repay 
development. 

The  great  island  of  Mindanao  seems  never  to  have  been  explored  by 
the  Spaniards,  who  contented  themselves  with  a  comparatively  few 
settlements  along  the  coast.  The  Jesuit  missionaries  penetrated  the 
interior,  and  from  their  reports  are  obtained  the  principal  information 
extant.  Since  American  occupation  it  has  been  impossible  to  make 
anything  like  extended  exploration  because  of  the  disturbed  conditions 
prevailing,  but  enough  has  been  done  in  this  direction  by  American 
prospectors  to  satisfy  us  that  this  island  is  very  rich  in  soil,  hard-wood 
timber,  and  minerals,  and  is  perhaps  the  richest  in  the  archipelago. 

Without  further  elaboration  it  will  be  seen  from  what  has  already 
been  said  that  there  is  immediate  and  pressing  need  of  railroads  in 
both  Luzon  and  Mindanao.  It  is  believed  that  they  offer  a  most  attract- 
ive field  for  investment  of  capital  as  well  as  for  men  of  small  means. 
The  Spaniards  seem  to  have  always  limited  their  plans  for  railroad 
building  to  the  island  of  Luzon.  Several  lines  were  projected  by 
them  with  Manila  as  the  point  of  beginning,  one  being  the  extension 
of  the  Manila  and  Dagupan  Railroad  along  the  western  coast  to  the 
northern  end  of  the  island,  a  distance  of  about  200  miles;  another 
branches  off  from  the  Manila  and  Dagupan  Railroad  at  or  near  Ca- 
lumpit,  and,  extending  up  the  valley  of  the  Rio  Grande  de  Pampanga, 
crosses  the  divide  between  the  head  waters  of  that  river  and  the  head 
waters  of  the  Rio  Grande  de  Cagyan,  and  follows  the  latter  stream  to 
its  mouth  at  Aparri,  at  the  northeastern  end  of  the  island.  This  line 
would  be  something  over  300  miles  in  length.  It  traverses  a  section 
of  Luzon  rich  agriculturally  and  generally  well  populated. 

The  great  Cagyan  Valley  is  said  to  be  the  largest  and  richest  in 
Luzon,  from  which  comes  the  greater  part  of  the  tobacco  raised  in  the 
island.  This  would  not  be  a  very  expensive  road  to  build,  and  it  is 
believed  it  would  pay  hadsomely  from  the  beginning.  Mr.  Horace 
Higgind,  the  general  manager  of  the  Manila  and  Dagupan  Railroad, 
informs  us  that  his  company  would  be  glad  to  build  this  road  at  once, 
and  is  prepared  to  do  so  upon  the  grant  of  a  charter  for  that  purpose. 

There  is  another  line  of  road,  much  talked  of  and  projected  under 
the  Spanish  regime,  beginning  at  Manila  and  running  at  first  in  a 
southwesterly  direction  near  the  coast  line  and  then  southeastward 
through  the  provinces  of  Cavite,  Laguna,  Tayabas,  Camarines,  and 
Albay  to  Sorsogon,  at  the  southern  end  of  the  island.     This  line  would 


OF    THP:    PHILIPPINE    ISLANDS,    1900-1903.  91 

be  about  200  miles  in  length.  It  would  run  through  a  rich  and  densely 
populated  country,  would  not  be  difficult  or  expensive  to  build,  and  it 
is  believed  would  be  immediately  profitable. 

A  line  has  also  been  projected  from  Manila  eastward  and  southeast- 
w  dly,  running  along  the  shores  of  Laguna  de  Bay  across  the  island 
to  a  port  on  Lamon  Bay.  This  port  is  said  to  be  the  best  in  the  islands, 
landlocked,  affording  shelter  in  anj^  weather,  and  with  a  depth  suffi- 
cient to  enable  vessels  of  heavy  draft  to  approach  close  to  shore. 
With  this  line  built,  the  distance  from  Manila  to  the  United  States 
would  be  shortened  by  about  700  miles.  The  line  would  pass  through 
a  number  of  large  towns  and  a  rich  and  fertile  country,  and  it  is 
believed  would  be  immediately  profitable. 

As  has  already  been  indicated  there  have  been  no  surveys  for  rail- 
roads in  the  island  of  Mindanao.  It  is  a  virgin  field  well  worthy 
of  thorough  and  immediate  investigation.  We  append  hereto  as 
"Exhibit  — "  maps  showing  all  these  lines  as  surveyed  or  projected. 

The  islands  of  Panay,  Negros,  and  Cebu  would  also  be  much  bene- 
fited by  short  lines  of  railroads.  They  are  densely  populated,  produce 
copra,  sugar,  etc.,  and  offer  an  attractive  field  for  investors. 

It  is  believed  that  were  the  Commission  in  a  position  to  grant  char- 
ters and  concessions  that  all  these  lines  in  Luzon  could  and  would  be 
built  by  foreign  capital.  Commercially  speaking,  these  islands  have 
for  generations  been  largely  in  the  hands  of  English  and  German 
merchants,  with  Spanish  connections,  and  they  know  and  appreciate 
their  desirability  for  investment.  For  obvious  reasons,  however,  had 
the  Commission  the  power  to  make  such  grants,  it  would  hesitate  to 
do  so  until  full  opportunity  for  investigation  had  first  been  offered 
Americans. 

The  Commission  early  reached  the  conclusion  that  it  had  no  author- 
ity to  grant  franchises  for  the  construction  of  railroads,  or  for  any 
other  purpose,  and  hence  have  done  nothing  in  this  direction.  Numer- 
ous applications  have  been  made  for  concessions  to  build  steam  and 
electric  railroads,  and  also  electric-light,  gas,  telephone,  and  other 
similar  plants,  both  in  Manila  and  other  portions  of  the  archipelago, 
but  for  the  reason  stated  the  Commission  has  uniformly  declined  to 
consider  them. 

The  Commission  is  of  the  opinion  that,  so  soon  as  it  has  the  power  to 
act  on  applications  of  this  character,  a  sound  policy  dictates  the  grant- 
ing of  franchises  for  works  of  internal  improvements,  and  the  results 
of  such  a  policy  will  be  most  fortunate. 

HARBOR   IMPROVEMENT. 

As  already  stated,  there  are  but  few  deep-water  harbors  in  these 
islands.  Those  of  the  large  cities  need  to  be  deepened  and  improved. 
We  have  confined  our  attention  for  the  present,  however,  to  the  hurbor 


92  KKl'OK'rs    OK    THE    CIVIL    GOVERNMENT 

of  JNLinila,  for  the  reason  that  this  city  is  the  chief  port  and  metropoiii:! 
of  the  islands,  and  to  mal^e  necessary  improvements  will  require  all 
the  funds  which  arc  at  present  availalJc  for  work  of  this  character. 

Large  vessels,  having  a  draft  of  more  than  10  feet,  are  now  com- 
pelled to  lie  2  miles  or  more  offshore.  Those  of  less  draft  than  this 
find  entrance  into  the  Pasig  River.  The  bay  is  so  large  that  it  feels 
the  full  effects  of  the  winds.  The  only  method  by  which  large  vessels 
anchoring  therein  can  take  on  or  discharge  cargo  is  by  lightering.  At 
best,  and  when  the  bay  is  calm,  this  is  a  tedious  and  very  expensive 
process,  and  during  rough  weather  becomes  impossible.  Moreover, 
during  the  prevalence  of  typhoons,  which  are  not  infrequent,  the  safety 
of  vessels  thus  situated  is  much  endangered. 

As  may  be  readily  understood  from  the  foregoing,  the  cost  of  doing 
business  in  this  port  is  very  great  and  constitutes  a  very  heavy  burden 
upon  commerce.  Freight  rates  from  Manila  to  Hongkong,  a  distance 
of  about  700  miles  only,  are  as  much  and  sometimes  more  than  from 
San  Francisco  to  Hongkong,  a  distance  of  about  8,000  miles.  In  spite 
of  these  drawbacks,  and  whilst  the  policy  of  the  United  States  with 
reference  to  these  islands  was  uncertain,  the  volume  of  trade  was 
steadily  growing;  and  now  that  the  late  Presidential  election  seems  to 
have  put  at  rest  all  doubts  on  this  score,  we  believe  it  will  continue 
to  do  so  in  an  increased  ratio  with  pacification,  the  influx  of  capital, 
and  the  application  of  American  ideas  and  methods.  The  paramount 
need,  therefore,  for  a  thoroughly  protected  harbor,  with  sufficient 
depth  of  water  to  accommodate  the  largest  ships,  wherein  they  can  lie 
not  only  in  safety,  but  can  load  and  discharge  cargo  in  all  weathers,  is 
apparent. 

The  Spanish  Government,  more  than  twenty  j^ears  ago,  formulated 
an  elaborate  scheme  for  the  construction  of  such  a  harbor,  and  levied 
a  special  tax  on  imports  and  exports  for  the  purpose  of  raising  the 
necessary  funds  to  carry  it  into  effect.  Operations  were  begun  pur- 
suant thereto  shortly  thereafter  and  continued  in  a  slow  and  intermit- 
tent way  up  to  the  time  of  the  native  outbreak  of  1896,  with  the  result 
that  about  30  per  cent  of  the  work  contemplated  was  completed. 

The  plans  and  specifications  of  the  Spanish  engineers  having  the 
matter  in  charge  came  into  possession  of  the  Americans  upon  occupa- 
tion in  1898,  and  have  been  carefully  examined  by  Capt.  John  Biddle, 
chief  of  engineers.  Division  of  the  Philippines,  and  his  assistants. 
They  are  pronounced  by  them  to  be  well  adapted,  with  some  minor 
modifications,  to  the  purpose  intended.  We  have  had  repeated  con- 
ferences and  discussions  with  Captain  Biddle,  and,  so  far  as  we  are  cap- 
able of  forming  an  intelligent  judgment,  concur  in  his  opinion.  It 
will  probably  cost  $2,500,000  gold  to  carry  out  the  project  in  its 
entirety.  We  have  enacted  a  law  providing  that  the  Spanish  plan  as 
lUodifled  by  the  chief  engineer  shall  be  carried  out,  making  a  present 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  93 

appropriation  of  $1,000,000  gold  for  that  purpose  and  directing  that 
the  work  shall  be  let,  after  advertising  here  and  in  the  United  States, 
to  the  lowest  responsible  bidder.  The  act  further  provides  that  the 
first  work  to  be  done  shall  be  the  extending  and  finishing  of  the  two 
long  jetties  or  breakwaters  already  partially  constructed,  and  which 
will  when  finished  inclose  the  new  harbor,  and  that  the  space  between 
them  shall  be  dredged  so  as  to  give  perfect  protection  to  the  largest 
vessels.  Further  appropriations  will  be  made  when  needed. 
(For  further  details  see  act  No.  22  accompanying  this  report.) 

NATIVE    TROOPS   AND   POLICE. 

The  question  as  to  whether  native  troops  and  a  native  constabulary 
is  at  present  practicable  has  received  much  thought  and  a  careful 
investigation  by  the  Commission.  We  have  felt  that  its  consideration 
and  determination  was  especially  important  at  this  time  in  view  of  the 
fact  that  the  volunteer  regiments  now  in  service  here  will  soon  be 
returned  to  the  United  States  to  be  mustered  out.  We  have  sought 
and  obtained  the  opinions  of  a  large  number  of  regular  and  volunteer 
ofiicers  of  all  rank,  having  their  fields  of  operation  in  all  parts  of  the 
islands,  and  there  appears  to  be  a  general  consensus  of  opinion  among 
them  that  the  time  is  ripe  for  these  organizations,  and  this  is  also  our 
conclusion. 

Assuming  that  Congress  at  its  next  session  will  provide  for  an 
increase  of  the  Regular  Army,  it  by  no  means  follows  that  a  large 
part  thereof  will  or  should  be  stationed  here  permanently.  Consid- 
erations of  public  policy  and  economy  alike  forbid  such  a  programme; 
nor  in  our  judgment  is  it  necessary. 

Whilst  the  American  soldier  is  unsurpassed  in  war,  as  it  is  under- 
stood among  civilized  people,  he  does  not  make  the  best  policeman, 
especially  among  a  people  whose  language  and  customs  are  new  and 
strange  to  him,  and  in  our  opinion  should  not  be  put  to  that  use  when, 
as  we  believe,  a  better  substitute  is  at  hand.  We  therefore  earnestly 
urge  the  organization  of  ten  regiments  of  native  troops  of  infantry 
and  cavalry,  the  proportion  between  the  two  arms  of  the  service  to  be 
fixed  by  competent  military  judges. 

These  troops  should  in  the  main  be  officered  by  Americans.  Cer- 
tainly this  should  be  the  case  as  to  their  field  officers  and  company 
commanders.  Lieutenants  might  be  Filipinos,  judiciously  selected, 
and  provision  might  be  made  for  their  promotion  in  the  event  of 
faithful  or  distinguished  service. 

The  opportunity  is  offered  for  the  selection  of  such  officers  largely 
from  the  officers  and  men  constituting  the  volunteer  regiments  now 
here,  who  are  at  present  available  and  by  reason  of  past  experience 
and  service  are  peculiarly  fitted  for  such  duty.  It  is  suggested  that  a 
provision  should  be  made  permitting  officers  of  the  Regular  Army  to 

23181—04 7 


94  REPOUTS    OF    TUE    (UVIL    GOVERNMENT 

be  appointed  to  command  in  those  native  regiments  without  losing 
their  position  in  the  regular  establishment. 

We  have  made  investigations  as  to  the  probable  cost  of  one  of  these 
native  regiments,  the  ofhcers  of  which  arc  to  bo  paid  as  in  the  regular 
service  of  the  United  States,  and  have  reached  the  conclusion  that  it  will 
not  exceed  $350,000  gold  per  anniun,  and  perhaps  will  be  something 
less.  This  estimate  is  based  upon  the  assumption  that  the  privates  will 
be  paid  $10  Mexican  per  month,  noncommissioned  officers  somewhat 
more,  and  that  a  special  and  cheaper  ration  suited  to  native  tastes  and 
habits  will  be  issued  in  lieu  of  the  regular  army  ration.  Col.  Charles 
A.  Woodruff,  chief  commissar}'.  Division  of  the  Philippines,  a  dis- 
tinguished authority  upon  this  subject,  informs  us  that  such  a  ration 
can  be  supplied  at  a  cost  of  a  fraction  less  than  13  cents  gold  per  day, 
and  that  it  would  be  ample  and  satisfactory.  The  cost  of  their  cloth- 
ing is  estimated  as  being  the  same  as  that  of  the  United  States  regular. 

We  feel  assured  that  upon  this  basis  there  will  be  no  difficulty  in 
enlisting  iirst-class  men  who  would  be  only  too  glad  to  serve  upon 
these  terms.  Indeed,  a  number  of  intelligent  officers,  entirely  conver- 
sant with  the  subject,  who  have  favored  us  with  their  views,  express 
the  opinion  that  a  considerably  lower  rate  of  pay  would  accomplish 
equally  good  results.  In  explanation  of  this  it  may  be  stated  that  the 
earning  capacity  of  the  average  native,  even  of  the  better  class,  is 
exceedingly  small,  and  the  scale  of  wages  for  labor  almost  incredibly 
low.  His  expenditures  are  correspondingly  small  and  his  style  of 
living  meager  and  simple.  It  is,  however,  all  that  he  has  been 
accustomed  to,  and  never  having  known  anything  better  he  is  con- 
tented and  happy  with  what  he  has.  Besides,  he  is  inordinately  fond 
of  the  show  and  glitter  of  military  life  and  wears  his  uniform  with  a 
conscious  sense  of  pride  and  increased  importance,  difficult  of  appre- 
ciation by  those  who  are  unfamiliar  with  his  characteristics  and  modes 
of  thought.  Not  only  does  he  entertain  these  sentiments  himself,  but 
it  is  cheerfully  conceded  by  his  associates  and  b}'  the  people  at  large; 
it  adds  to  his  social  position  and  that  of  his  family  as  well.  The  pay, 
clothing,  and  ration,  therefore,  which  would  seem  insufficient  to  an 
American,  are  regarded  with  a  very  different  eye  b}'  the  native. 

Whether  these  regiments  should  be  enrolled  as  part  of  the  Regular 
Army  of  the  United  States  or  should  constitute  a  separate  insular 
establishment,  but  under  the  control  of  the  United  States  military 
authorities,  is  an  interesting  question,  which  is  worthy  of  the  careful 
consideration  which  no  doubt  it  will  receive.  Arguments  pro  and  con 
readily  suggest  themselves;  but  as  the  question  is  one  not  in  any  way 
affected  by  anything  peculiar  to  this  people  or  by  exceptional  local 
conditions,  we  make  no  recommendation.  In  this  connection  it  should 
be  stated  that  in  any  event  it  will  be  necessary  for  Congress  to  make 
provision  for  the  maintenance  of  these  troops  for  the  next  two  years. 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  95 

After  that  time  it  is  believed  that  with  the  restoration  of  order  and  an 
improved  revenue  system,  honestly  and  efficiently  administered,  the 
income  of  the  insular  government  will  have  so  increased  that  it  can 
without  difficulty  permanently  assume  and  carry  this  burden. 

We  further  recommend  that  a  comprehensive  scheme  of  police 
organization  be  put  in  force  as  rapidly  as  possible;  that  it  be  separate 
and  distinct  from  the  army,  having  for  its  head  an  officer  of  rank  and 
pay  commensurate  with  the  importance  of  the  position,  with  a  sufficient 
number  of  assistants  and  subordinates  to  exercise  thorough  direction 
and  control.  This  organization  should  embrace  every  township  in  the 
islands,  and  should  be  so  constituted  that  the  police  of  several  contiguous 
townships  could  be  quickly  mobilized.  The  chief  officers  of  this  organ- 
ization should  be  Americans;  but  some  of  the  subordinate  officers 
should  be  natives,  with  proper  provision  for  their  advancement  as  a 
reward  for  loyal  and  efficient  services. 

The  main  duty  of  the  police  would,  of  course,  be  to  preserve  peace 
and  maintain  order  in  their  respective  townships,  but  occasion  would 
no  doubt  frequently  arise  when  it  would  be  necessary  to  utilize  the 
forces  of  several  townships  against  large  bands  of  ladrones.  The 
police  of  each  township  should  be  subject  to  the  call  of  the  local  author- 
ities, but  prompt  reports  of  their  operations  to  the  central  head,  and 
especially  of  any  unusual  occurrence,  should  be  required.  There 
should  also  be  some  responsible  subordinate  in  charge  of  the  police  of 
each  township,  not  only  to  secure  discipline  and  efficiency  in  the  force 
itself,  but  also  as  a  check  against  their  improper  use  by  the  presi- 
dentes  and  other  officials  of  the  municipalities.  This  is  the  more 
important  because  it  is  difficult  to  make  the  average  Filipino  official 
understand  that  power  is  not  placed  in  his  hands  for  his  own  personal 
benefit.  Under  the  Spanish  regime  presidentes  and  other  officials  of 
the  municipalities  were  required  to  serve  without  pay  from  the  Gov- 
ernment and  were  expected  to  recoup  themselves  from  the  people. 
There  is  as  yet  no  public  sentiment  hostile  to  such  courses  which  would 
operate  as  a  deterrent,  and  it  is  feared  they  might  readily  fall  again 
into  their  old  habits  if  unchecked. 

There  have  been  four  years  of  disorder,  more  or  less  accentuated,  in 
these  islands,  and  the  return  to  peaceful  habits  of  all  those  who  at  one 
time  or  another  have  been  in  arms,  especially  when  the  character  of 
the  people  is  considered^  can  not  in  the  nature  of  things  be  immediate. 
It  is  believed  that  a  well-directed  native  police  on  the  lines  indicated 
in  the  foregoing  will  be  of  incalculable  service  in  hastening  the  return 
of  peace  and  order. 

Through  them  would  be  protected  the  masses  of  the  people,  who  are 
anxious  for  peace  and  quiet,  and  who  would  willingly  acknowledge 
the  sovereignty  of  the  United  States,  but  who,  as  matters  stand,  are 
not  only  terrorized  and  despoiled,  but  are  often  forced  into  an  appear- 


96  REPORTS    OK    TIIK    OIVIL    OOVERNMENT 

ftncc  of  hostility  to  our  rule  which  they  do  not  feel.  Furthernioro,  it 
would  give  them  courage  to  assist  in  their  own  defense.  It  would 
inspire  in  them  the  feeling  they  could  best  do  so  by  actively  aiding 
the  civil  and  military  authorities.  As  these  local  constables  would 
have  a  personal  acquaintance  of  practically  all  of  the  people  in  their 
respective  counnunities,  together  with  means  of  information  as  to  their 
movements  and  manners  of  life,  it  would  soon  become  impossible  for 
insurrectos  and  bandits  to  live  in  the  towns  as  peaceable  citizens  so 
long  as  it  suited  their  interest  or  pleasure,  then  to  assume  the  role  of 
hostiles,  and  when  pursued  by  our  soldiers  again  return  to  their  homes 
without  molestation. 

A  native  police  of  this  sort,  when  supported  by  American  and  native 
troops,  would  be  especially  serviceable  in  putting  an  end  to  the  only 
real  opposition  to  our  authority  which  to-day  exists,  with  which  our 
soldiers  find  it  difficult  to  cope.  Were  the  insurrectos  in  fact  soldiers, 
waging  civilized  warfare,  as  this  term  is  ordinarily  understood,  it 
would  have  been  ended  long  ago;  but  this  is  not  the  situation  we  have 
to  confront.  The  real  difiiculty  lies  in  desultory  attacks,  as  a  rule 
feeble  and  insignificant,  made  by  men  who  are  one  day  inoffensive 
noncombatants  and  the  next  guerrillas.  A  double  role  of  this  sort  is 
possible  with  our  soldiers,  who  find  it  difficult  to  distinguish  one  Fili- 
pino from  another,  and  who  have  no  means  of  acquiring  an  intimate 
knowledge  of  their  movements.  But  as  already  said,  the  native  police 
would  experience  no  such  difficulty. 

The  Commission  doubtless  has  power  by  virtue  of  its  instructions  to 
establish  a  police  system  such  as  is  here  suggested,  but  it  recognizes 
that  at  this  time  such  a  force  would  be  operating  mainly  in  the  same 
territory  as  the  army,  and  that  without  thorough  cooperation  con- 
fusion might  ensue.  Besides,  the  subject  is  a  large  one,  involving 
considerations  semimilitary  in  their  nature,  and  therefore  the  Commis- 
sion has  deemed  it  inexpedient  to  act  without  direct  authority  from 
you. 

The  only  objection  we  have  heard  urged  to  the  employment  of 
natives  as  soldiers  and  constables  is  that  their  loyalty  may  be  ques- 
tioned, and  that  it  might  prove  a  source  of  danger  to  put  arms  in 
their  hands  at  present.  We  have  of  course  considered  this  view,  but 
have  arrived  at  the  conclusion  that  this  objection  is  not  insuperable. 
It  is  expected  that  there  would  from  time  to  time  be  isolated  cases  of 
defection,  but  we  believe  that  judicious  selection  and  discipline  would 
create  a  native  force  both  reliable  and  effective.  The  history  of  the 
Filipino  soldier  when  serving  under  the  Spanish  flag  supports  this 
view.  For  many  years  prior  to  the  outbreak  of  1896  the  Spaniards 
had  less  than  5,000  Peninsular  troops  in  these  islands.  All  the  rest 
were  natives.  The  latter,  as  a  rule,  remained  loj'^al  to  Spain  until  it 
was  manifest  that  her  sovereignty  was  ended.     This  was  the  case 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  97 

although  the  masses  from  which  these  native  soldiers  were  drawn 
were  cruelly  oppressed  by  the  Spaniards,  and  they  themselves  were 
poorly  fed  and  paid  inadequately  and  rarely.  Besides,  the  Spanish 
officers,  as  a  rule,  would  compare  very  unfavorably  with  the  American 
in  personnel  and  equipment,  and  presumably  were  unable  to  impress 
themselves  upon  the  native  so  as  to  secure  his  respect  and  affection, 
as  would  our  officers. 

The  experience  of  England  in  dealing  with  conditions  practically 
the  same  as  those  which  we  are  called  on  to  meet,  as  she  has  frequently 
done,  and  her  success,  furnishes  a  precedent  for  our  guidance  which 
should  not  be  overlooked.  Though  she  has  had  here  and  there  unfor- 
tunate experiences,  as  a  general  rule  she  has  been  served  faithfully  by 
her  native  soldiers,  even  against  their  own  brethern. 

The  fact  is  every  soldier  has  a  natural  feeling  of  loyalty  for  the  flag 
under  which  he  serves.  Respect  for  his  officers  and  obedience  to  their 
orders  become  to  him  a  habit  of  life.  When  decently  treated,  he 
becomes  sincerely  attached  to  them  and  cheerfully  obeys  their  orders. 
It  is  our  deliberate  judgment  that  not  only  is  the  organization  of 
native  regiments  here  not  premature,  but  might  safely  have  been  begun 
at  least  a  year  ago. 

LEGAL   PROCEDURE. 

Careful  investigation  has  been  made  as  to  the  causes  of  the  universal 
complaints  that  are  made  in  regard  to  the  administration  of  justice  in 
the  Philippine  Islands.  One  of  the  principal  causes  is  the  great  delay 
necessarily  incident  to  the  progress  of  litigation  under  the  code  of 
civil  procedure  now  in  force.  Before  a  suit  can  be  instituted  in  a 
court  of  first  instance,  which  is  the  ordinary  trial  court  for  all  matters 
of  importance,  the  plaintiff  must  execute  a  power  of  attorney  author- 
izing a  solicitor  to  act  for  him.  The  power  of  attorney  must  be 
acknowledged  before  a  notary  public,  and  must  then  be  declared  suffi- 
cient by  an  attorney  who  will  act  in  the  cause.  The  intervention  of 
these  three  paid  officials— attorney,  solicitor,  and  notary  public— is 
necessary  for  the  institution  of  an  action.  Any  defect  in  the  certificate 
of  the  notary  public,  or  in  the  power  of  attorney  itself,  or  in  the  decla- 
ration of  sufficiency,  is  ground  for  a  dismissal  of  the  action,  and  an 
appeal  from  the  ruling  of  the  court  in  either  of  these  matters  is  allowed, 
whereby  the  cause  will  pass  to  the  supreme  court  at  its  initial  stage. 
All  the  proceedings  must  be  upon  stamped  paper.  Any  irregularity 
in  that  respect  may  load  to  a  ruling  by  the  court  and  another  appeal. 
Then  the  competency  of  the  judge  may  be  challenged,  and  an  appeal 
may  be  taken  from  the  ruling  upon  that  subject.  Then  the  jurisdic- 
tion of  the  court  may  be  assailed,  by  inhibitory  or  declinatory  pleas, 
and  an  appeal  may  be  taken  from  the  ruling  upon  that  subject.  All 
these  surroundings  and  appeals  are  preliminary  to  any  investigation 
of  the  merits  of  the  controversy, 


98  REPORTS    OF    THE    CIVIL    GOVERNMENT 

At  evory  step  of  the  subsequent  proceedings  interlocutory  appeals 
are  possible  and  usual.  An  action  is  often  dismissed  upon  the  merest 
technical  grounds,  and  in  such  case  the  attorney's  and  solicitor's  fees 
of  the  successful  part}''  are  taxed  against  the  defeated  one,  and  the 
practice  is,  and  long  has  been,  to  make  the  fees  veiy  much  larger  in 
such  case  than  would  have  been  charged  against  the  client.  Such 
instiinces  of  gross  extortion,  under  the  form  of  legal  procedure,  are 
frequent  and  have  been  called  to  the  attention  of  the  Commission. 
The  practical  working  of  the  existing  code  is  to  secure  injustice 
instead  of  justice.  Business  men  refuse  to  go  into  the  courts  with 
their  controversies,  because  it  is  better  to  submit  to  the  loss  of  their 
claims  than  to  be  robbed  under  the  forms  of  law.  The  procedure 
seems  skillfully  adapted  to  the  promotion  of  delay,  expense,  and 
denial  of  justice.  Its  reform  is  considered  impracticable,  and  an 
entirely  new  code  of  procedure,  civil  and  criminal,  simple,  easily 
understood,  adapted  to  secure  speedy  trial,  free  from  technical  and 
antiquated  distinctions  of  forms  of  actions,  substantially  analogous  to 
the  newer  codes  of  procedure  in  the  United  States,  is  thought  to  be 
indispensable.  A  code  designed  to  secure  those  ends  is  in  course  of 
preparation,  and  will  probably  be  completed  January  next.  The 
Filipino  lawyers  and  judges  have  been  largely  consulted  in  its  prepa 
ration,  and  they  have  taken  great  interest  in  it,  and  have  made  valua- 
ble suggestions.  The}^  as  well  as  the  American  lawyers  in  the  islands, 
are  substantially  all  agreed  that  an  essentially  new  code  is  indispensa- 
ble in  the  interests  of  justice.  It  is  not  believed  that  such  a  code  will 
meet  with  opposition  in  any  influential  quarter;  on  the  contrary,  it  is 
apparent  that  the  need  for  such  a  reform  is  unviersally  recognized, 
and  its  advent  will  be  welcomed  by  all  classes. 

The  foregoing  remarks  apply  only  to  the  procedure. 

CrVIL   CODE. 

The  Civil  Code,  in  distinction  from  the  Code  of  Procedure,  is  based 
upon  the  civil  law,  and  in  most  particulars  is  adequate  for  the  solution 
of  commercial  controversies  and  the  regulation  of  all  civil  conduct. 
So  far  as  it  refers  to  particular  Spanish  institutions  and  relations  to 
the  Government  of  Spain,  it  will  need  reformation,  so  as  to  bring  it 
into  harmony  with  the  laws  and  Constitution  of  the  United  States. 
Such  a  reformation  will  be  made  by  the  Commission  in  due  time.  But 
as  a  system  of  jurisprudence,  it,  in  its  essentials,  undoubtedly  meets 
the  needs  of  the  people  of  the  Philippine  Islands  and  furnishes  a  just 
measure  of  their  rights  and  duties.  It  is  thought  that  only  such 
changes  should  be  made  in  the  body  of  the  law  itself  as  are  rendered 
necessary  by  reason  of  the  changed  conditions  in  passing  from  the 
sovereignty  of  Spain  to  that  of  the  United  States. 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  99 

REORGANIZATION   OF   COURTS. 

Under  military  orders  issued  by  Major-General  Otis,  the  civil  courts, 
as  composed  and  constituted  by  the  laws  of  Spain,  which  were  held 
and  administered  prior  to  August  13,  1898,  were  permitted  to  resume 
the  exercise  of  civil  jurisdiction  conferred  by  Spanish  laws,  within  the 
islands,  subject  to  such  supervision  of  the  military  government  of  the 
United  States  as  might  be  deemed  requisite.  In  accordance  with  those 
orders,  a  supreme  court  for  the  islands  was  organized,  and  courts  of 
first  instance  have  likewise  been  established  by  virtue  of  military 
orders  or  acts  passed  b}'  the  Commission  for  the  provinces  of  Manila, 
Pangasinan,  Cagayan,  Isabella,  Cavite,  Iloilo,  Pampanga,  Nueva  Ecija, 
Ilocos  Norte,  Bataan,  Cebu,  Bohol,  La  Union,  and  Benguet. 

Courts  of  justice  of  the  peace  have  likewise  been  largely  organized 
in  the  same  provinces.  The  judges  of  all  these  courts,  except  the 
supreme  court,  have  been,  and  are,  Filipinos.  In  the  supreme  court, 
the  minority  have  been,  and  are,  Americans.  These  courts  are  all 
performing  their  regular  functions  at  the  present  time,  but  the  arrange- 
ment under  which  the}'  have  been  constituted  has  been  understood  to 
be  provisional  and  temporary.  The  salaries  paid  to  judicial  officers 
under  the  Spanish  regime  was  very  small,  the  highest  being  that  paid 
to  the  chief  justice  of  the  supreme  court,  which  was,  for  salary  and 
allowance,  ^6,500  Mexican,  equivalent  now  to  ^3,250  American  money. 
The  judges  of  the  courts  of  first  instance  received  no  allowance,  and 
their  salaries  ranged  from  $1,875  Mexican  ($937.50  American  money)  to 
12,750  Mexican  ($1,375  American  money),  each.  With  these  meager 
salaries,  it  is  not  strange  that  charges  of  corruption  and  acceptance  of 
bribes  should  have  been  freely  made  against  the  judges.  The  evidence 
is  very  strong  that  the  charges  were  well  founded.  The  judges 
appointed  under  the  American  administration  received  20  per  cent 
larger  salaries,  but  the  salaries  are  entirely  inadequate  to  secure  com- 
petent men.  Charges  of  corruption  and  incompetence  against  the 
present  Filipino  judges  are  common. 

The  appointment  of  Spaniards  to  judicial  positions  appears  imprac- 
ticable. One  such  appointment  made  by  the  military  authorities 
proved  unfortunate.  The  animosities  between  the  Spaniards  and 
Filipinos  are  such  that  it  was  found  to  be  practically  impossible  for  a 
Spaniard  to  preside  as  a  judge,  without  exciting  a  very  high  degree 
of  ill-feeling.  Such  appointments  are  not  considered  advisable,  at  least 
for  the  present.  The  number  of  Filipinos  who  are  fitted  by  nature, 
education,  and  moral  stability  to  fill  such  positions  is  very  small. 
Very  few  can  be  found  among  them  in  whose  integrity  and  ability 
business  men  have  confidence.  The  feeling  is  widespread  that  for  a 
time,  and  until  the  traditions  of  bribery  and  incompetence  have  in  part 
been  forgotten,  these  positions  must  be  filled  mainly  by  Americans. 


100  REPORTS    OF    THE    CIVIL    GOVERNMENT 

It  is  likewise  almost  indispensable  to  have  Americans,  for  a  time,  for 
the  proper  administration  of  a  new  code  of  procedure.  It  is  thought 
that  the  courts  of  justices  of  the  peace  may  all,  or  nearly  all,  be 
presided  over  by  Filipinos,  the  rights  of  the  parties  being  secured 
b}"  an  easy  and  inexpensive  appeal  to  the  courts  of  first  instance.  In 
the  courts  of  first  instance,  where  the  new  procedure  will  receive  its 
most  important  application,  American  judges  in  most  cases  seem  indis- 
pensable. In  the  court  of  last  resort  it  will,  doubtless,  be  important 
to  have  some  judges  who  are  familiar  with  local  institutions  and  cus- 
toms, and  for  that  court,  doubtless,  Filipinos  of  high  character  and 
excellent  attainments  can  be  selected  to  fill  some  of  the  positions.  It 
is  hoped  that  b}^  a  consolidation  of  provinces  into  judicial  districts, 
with  authority  on  the  part  of  the  judge  assigned  to  any  district  to  hold 
sessions  of  his  court  at  stated  periods  in  each  province  of  the  district, 
the  number  of  judges  may  be  materially  reduced,  so  that  adequate 
salaries  can  be  paid  without  too  much  enlargement  of  the  salary 
account. 

The  Spanish  language  is  the  only  one  common  to  all  educated  Fili- 
pinos, the  great  mass  of  the  people  speaking  only  the  native  dialect 
peculiar  to  their  respective  localities.  A  knowledge  of  the  Spanish 
language  is  exceedingly  important  for  the  successful  performance  of 
Judicial  duties  in  these  islands,  and  the  Commission  are  making  stren- 
uous efforts  to  secure  men  for  such  positions  who,  in  addition  to  the 
other  requisite  attainments,  have  likewise  a. sufficient  knowledge  of  the 
Spanish  language.  It  is  hoped  that  the  judiciary  may  be  reorganized 
early  in  the  year  1901,  substantially  upon  the  same  lines  herein  indi- 
cated. It  is  not  thought  that  Congressional  action,  aside  from  the 
Spooner  bill,  or  other  analogous  legislation,  is  necessary  to  enable  the 
Commission  to  carry  out  its  purposes  in  regard  to  codes  of  procedure 
or  reorganization  of  the  courts  in  general. 

The  establishment  of  one  or  more  Federal  courts  for  the  islands  is 
not  within  the  competence  of  the  Commission.  For  that  reason  no 
discussion  is  made  at  this  time  in  relation  to  that  subject. 

The  Commission  have  been  favored  with  "A  historical  resume  of 
the  administration  of  justice  in  the  Philippine  Islands,"  prepared  by 
Hon.  Cayetano  S.  Arellano,  present  chief  justice  of  the  supreme  court. 
The  document  is  exceedingly  instructive  and  valuable,  and  is  here 
annexed,  marked  Exhibit  J. 

LAND   TITLES   AND   REGISTRATION. 

A  very  large  percentage  of  the  lands  are  occupied  and  claimed  by 
individuals  without  any  record  title  whatever.  Many  never  had  a 
record  title,  and  those  who  had  them  have  largely  lost  them,  through 
the  vicissitudes  of  war,  the  burning  of  records,  and  the  ravages  of 
insects.     It  is  difficult  for  would-be  purchasers  to  obtain  any  certain 


OP    THE    PHILIPPINE    ISLANDS,    1900-1903.  101 

evidence  as  to  the  validity-  of  titles  that  are  offered  to  them,  and  loans 
upon  real  estate  security  are  very  difficult  to  obtain,  because  of  the 
uncertainty  of  titles  and  boundaries.  Before  there  can  be  any  large 
additional  industrial  development,  which  depends  upon  certainty  of 
tenure,  a  new  system  of  accurate  surveys,  investigation,  and  registra- 
tion of  titles  is  indispensable.  A  system  providing  for  these  needs  is 
in  course  of  preparation. 

CURRENCY. 

It  is  unnecessary  to  repeat  the  historical  data  concerning  the  cur- 
rency of  the  islands  which  were  embraced  in  the  report  of  the  first 
Philippine  Commission  and  in  the  testimony  taken  by  that  Commis- 
sion. For  present  purposes  it  is  sufficient  to  say  that  upon  the  arri- 
val of  the  Americans  in  the  islands  the  principal  money  in  use  here 
was  the  Mexican  silver  dollar  or  peso,  supplemented  by  the  Spanish- 
Filipino  pesos,  silver  and  paper,  and  fractional  silver  and  copper  coins. 
After  the  advent  of  American  troops  it  was  represented  to  the  mili- 
tary authorities  by  the  local  banks  that  the  further  introduction  of 
Mexican  currency  was  essential.  For  some  years  prior  to  that  time 
the  introduction  of  Mexican  currency  had  been  unlawful  under  Span- 
ish authority,  although  it  had  been  constantly  introduced  for  yeara 
with  the  connivance  of  the  customs  officials.  On  the  19th  of  August, 
1898,  the  three  banks  doing  business  in  the  islands,  namely,  the  Char- 
tered Bank  of  India,  Australia,  and  China,  the  Hongkong  and  Shanghai 
Banking  Corporation,  and  the  Banco  Espaiiol  Filipino,  by  their  agents 
or  managers,  wrote  as  follows: 

To  Brigadier-General  Greene, 

U.  S.  Volunteers,  Finance  Department. 
Dear  Sir:  Owing  to  the  large  amount  of  American  gold  being  offered  us  for 
exchange  into  Mexican  currency,  and,  further,  the  big  sterling  letters  of  credit 
advised  us  in  favor  of  the  paymasters  and  others  which  we  understand  will  be 
required  in  Mexican  dollars,  as  this  is  the  only  acceptable  coin  in  use  amongst  the 
natives,  and  for  general  trading  purposes,  while  we  are  anxious  to  give  the  soldiers 
and  your  Government  every  assistance  by  being  in  a  position  to  quote  an  exchange 
of  not  worse  than  $2  Mexican  for  $1  gold,  we  shall  be  quite  unable  to  preserve  this 
basis  of  exchange  should  there  be  any  scarcity.  In  view  of  this,  and  in  order  to 
give  every  facility  for  the  exchange  of  United  States  gold  currency,  we  may  require 
to  import  clean  Mexican  dollars,  duty  free,  and  shall  be  obliged  if  you  can  see  your 
way  to  grant  us  the  necessary  authority. 

And  we  agree  to  maintain  a  rate  of  exchange  of  not  less  than  two  Mexican  dol- 
lars for  one  gold  dollar  to  the  extent  of  our  imports  of  Mexican  dollars. 
We  remain,  dear  sir,  your  obedient  servants, 

R.  W.  Brown, 
Agent,  Manila,  for  the  Chartered  Bank  of  India,  Australia,  and  China. 

Wm.  Jones, 
Agent  for  the  ITonrjkong  and  Shanghai  Banking  Corporation. 

Venacfo  Balbas, 
Banco  Espauol  Filipino,  El  Director  de  Turno. 


102 


REPORTS    OF    THE    OIVIL    OOVEKNMENT 


This  proposition  having  been  approved  by  Major-General  Merritt, 
then  commanding  in  these  islands,  the  following  reply  was  sent  on  the 
same  day: 

Hdqrs.  Second  Brigade,  Second  Division,  EionTH  Army  Corps, 

Manila,  P.  I.,  August  19,  1838. 
Messrs.  William  Jones,  Agent,   The  Hongkong  and  Shanghai  Banking  Corporation; 
R.  W.  Brown,  Agent,  Chartered  Bank  of  India,  Australia,  and  China;  V.  Balbas, 
Director,  Banco  Espanol  Filipino. 

Dear  Sirs:  Replying  to  your  favor  of  this  date,  I  have  to  say  that  your  proposi- 
tion is  approved  by  General  Merritt,  and  you  are  authorized,  until  further  notice,  to 
import  Mexican  dollars  free  of  duty  on  the  conditions  therein  stated. 
I  remain  your  obedient  servant, 

F.  V.  Greene, 
Brigadier^General,  Intendente  General. 

In  pursuance  of  the  authority  thus  granted,  the  banks  proceeded  to 
import  Mexican  dollars,  and  American  money  was  exchanged  by  the 
banks  for  insular  or  Mexican  currency,  and  the  reverse,  with  a  profit 
to  the  banks  for  each  exchange  either  way,  at  a  ratio  securing  at  least 
two  Mexican  dollars  for  one  United  States  dollar,  down  to  July,  1900. 

The  rates  paid  in  Mexican  money  by  the  banks  for  United  States 
money,  from  August  19, 1898,  down  to  August,  1900,  were  as  follows: 

[For  $1  in  American.] 


1898. 

Mexican. 

August  19 12.  07 

September  2 2. 05 

September  21 2.  04 

September  22 • 2.  02 

October  5 2. 04 

October  15 2. 05 

November  2 2. 03 

1899. 

March  4 2. 04 

April  28 2. 02 

April  29 2. 00 

July  26 2.  01 

September  9 2.  02 

September  15 2. 03 


1899. 

Mexican. 

September  22 $2. 04 

September  25 2. 05 

October  5 2. 06 

November  10 2. 04 

November  15 2. 05 

November  23 2. 04 

December  6 2. 03 

1900. 

January  31 2.02 

February  1 2. 01 

April  5 2. 02 

June  25 2. 01 

June  28 2. 00 

July  31 1. 98 


It  thus  appears  that  down  to  late  in  July,  1900,  the  buying  price 
of  American  mone}^  at  the  banks  had  alwa3's  been  such  as  to  give  at 
least  |2  in  Mexican  for  $1  American  money,  and  varying  from  that 
price  up  to  ^2.07.  But  during  all  this  time  the  market  price  of  Mex- 
ican coin  had  been  such  that  the  banks  had  not  been  to  any  expense 
to  maintain  their  guaranty  of  August  19,  1898,  but  had  always  made 
a  profit  on  the  transactions.  Owing  in  part  to  a  rise  in  the  price  of 
silver  in  the  markets  of  the  world,  and  particularly  to  a  demand  for 
Mexican  dollars  for  the  pa3nnent  of  troops  and  purchase  of  supplies 
incident  to  the  military  operations  in  northern  China,  it  became  no 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  103 

longer  profitable  for  the  banks  to  give  $2  Mexican  for  $1  American 
money,  and  hence  the  rate  of  $1.98  Mexican  for  $1  of  American 
money  was  quoted  the  latter  part  of  July,  Its  effect  was  imme- 
diately to  create  a  discrimination  against  American  money.  Small 
traders  took  advantage  of  the  situation  and  would  accept  money  only 
at  the  rate  of  $1.50,  §1.60,  $1.70,  or  $1.75  for  a  dollar,  resulting  in  very 
great  loss  to  all  who  had  to  make  payments  of  an}^  kind  in  American 
money.  The  people  reasoned  that  if  American  money  could  go  down 
to  $1.98  it  could  go  very  much  lower,  and  that  there  was  no  reason 
why  it  should  not  be  upon  a  par  with  the  Mexican  dollar.  There  was 
much  disturbance  in  business  circles,  and  the  conditions  were  highly 
unsatisfactory. 

The  banks  suggested  as  a  remedy  the  purchase  and  introduction  of 
a  British  dollar,  coined  at  Bombay,  largely  for  use  in  the  Straits  Set- 
tlement and  China.  The  so-called  British  dollar  at  that  time  could 
have  been  imported  into  Manila  on  the  basis  of  about  $2.01  or  $2.02 
for  $1  American  gold,  but  its  bullion  value  as  compared  with  the 
Mexican  is  very  difficult  to  ascertain  with  clearness,  and  the  apparent 
effect  of  its  introduction  would  have  been  to  enable  the  local  banks  to 
have  placed  it  in  their  vaults  in  lieu  of  the  Mexican  currency  which 
the  Government  had  there  deposited  to  the  amount  of  upwards  of 
$4,000,000,  and  to  export  to  China  the  Mexican  currency  belonging  to 
the  Government,  and  thereby  secure  a  very  large  profit  to  themselves 
by  the  substitution.  Meanwhile,  an  additional  element  of  uncertainty 
would  have  been  introduced  into  the  money  of  the  islands,  and  the 
certainty  of  continued  stability  of  ratio  between  the  different  cur- 
rencies under  such  circumstances  would  have  been  far  from  clear.  As 
subsequent  events  have  shown,  the  attempt  to  introduce  the  so-called 
British  dollar  would  not  have  contributed  in  any  degree  to  the  desired 
relief,  because  that  dollar  has  been  made  use  of  in  the  military  opera- 
tions in  China  to  a  considerable  degree,  so  that  only  $1.95  or  $1.96  of 
that  currency  could  now  be  laid  down  in  Manila  for  $1  of  United 
States  gold.  Apparent!}^  the  difficulty  would  have  been  aggravated 
instead  of  being  relieved  by  the  adoption  of  the  course  which  the  banks 
recommended  to  the  military  governor  and  to  the  Commission. 

As  temporary  measures,  the  military  governor,  on  August  3,  1900, 
directed  the  collector  of  customs  and  collector  of  internal  revenue  to 
receive  United  States  currency,  tendered  in  payment  of  taxes  and  cus- 
toms dues,  at  the  rate  of  two  to  one,  and  the  treasurer  to  receipt  for 
all  United  States  currency  turned  into  the  treasury  by  collectors  on 
the  same  basis;  and  on  the  11th  of  August,  made  an  arrangement  with 
the  Hongkong  and  Shanghai  Banking  Corporation  and  the  Chartered 
Bank  of  India,  Australia  and  China,  in  which  the  Government  deposits 
of  insular  funds  were  kept,  whereby  the  banks  were  to  purchase  from 
the  public  United  States  gold,  silver,  and  notes  handed  over  the  coun- 
ter at  two  to  one,  giving  a  return  to  the  treasurer  every  Monday  of 


104 


REPORTS    OK    THE    CIVIL    GOVERNMENT 


the  amount  of  the  previous  week's  operation,  an  equivalent  amount 
then  being  transferred  from  the  insular  currency  dollars  to  the  balance 
held  bv  the  United  States  Treasurer  in  his  gold-deposit  account,  at  the 
same  rate  of  two  to  one.  This  arrangement  enabled  the  public  at  any 
time  to  obtain  at  the  banks  two  Mexican  dollars  for  a  dollar  of  Amer- 
ican money,  so  that  the  public  were  furnished  with  a  stable  currency, 
and  American  money  was  freely  accepted  in  business  transactions  at 
the  ratio  stated,  because  it  could  at  any  time  be  transferred  into  Mex- 
ican money.  But  it  was  the  large  deposit  of  Mexican  money  which 
the  Government  then  had  in  the  bank  that  enabled  it  to  furnish  this 
facility  to  the  public,  and  whenever  the  balance  of  Mexican  money 
belonging  to  the  Government  and  deposited  in  the  banks  should  have 
been  exhausted,  it  would  no  longer  be  possible  to  maintain  the  ratio  indi- 
cated, except  by  the  purchase  and  importation  of  additional  Mexican 
mone}',  which  would  have  to  be  done  at  a  considerable  loss.  The 
practical  working  of  this  regulation  has  been  to  materially  reduce  the 
Government's  deposit  of  silver,  and  to  increase  its  deposit  of  American 
money,  in  some  weeks  with  startling  rapidity.  The  receipts  from 
internal-revenue  and  customs  dues  have  been  largely  in  the  form  of  local 
checks  upon  the  banks,  which  were  payable  in  insular  currency,  so  that 
the  supply  of  Mexican  money  was  in  that  way  to  some  extent  constantly 
replenished,  but  the  depletion  has  continued  at  quite  a  rapid  rate,  as 
will  be  seen  from  the  following  statement  of  the  amounts  of  the  Gov- 
ernment deposits  in  Mexican  money  and  in  United  States  money, 
stated  by  weeks,  from  the  18th  day  of  August,  1900,  to  the  17th  day 
of  November,  1900,  inclusive: 


Date. 


Hongkong  Bank. 


United  States 
currency. 


Mexican. 


Chartered  bank. 


United  States 
currency. 


Mexican. 


August  18 

August  22 

August  26 

August  29 

September  1  . 
Septembers  . 
Septembers  . 
September  12 
September  15 
September  19 
September  22 
September  26 
September  29 

October  3 

October  6 

October  10  . . . 
October  13  ... 
October  17  ... 
October  20  . . . 
October 24  ... 
October 27  ... 
October  31  . . . 
Novembers.. 
November?. . 
November  10. 
November  14. 
November  17. 


S117, 949. 95 
107, 293. 86 
218,081.48 
301,535.07 
300, 160. 04 
306, 584. 60 
312,031.56 
537,385.63 

543. 335. 11 
758, 073. 04 

762. 900. 12 
776, 033. 55 
901, 619. 50 
915,214.61 

1,116,469.40 
1,287,874.63 
1,301,06.5.81 
1,318,039.46 
1,311,369.11 
1,. 5.52, 409. 90 
1, 570, 688. 08 
1,696,820.70 
1,705,924.35 
1,724,32.5.29 
1,900,124.73 
2,226,849.31 
2,234,302.76 


S2, 440, 910. 10 

2,471,051.62 

2,463,083.57 

2, 250, 993. 35 

2, 370, 293. 72 

2,211,530.99 

2,280,806.30 

1, 882, 724. 78 

1,995,655.55 

1,6.58,119.47 

1,173,065.04 

1,952,121.67 

1, 764, 393. 84 

1,865,876.71 

1, 588, 5.59. 12 

1,375,699.32 

1,461,. 59.5. 07 

1,  .585, 667. 81 

1,670,092.58 

894, 983. 06 

1,011,833.65 

917, 439. 09 

981,359.14 

1,057,137.77 

721,255.49 

195, 648. 65 

290,420.36 


8189, 924. 76 
189, 924. 76 
189, 924. 75 
189, 924. 75 
268,272.50 
268,272.50 
318, 162. 00 
318, 162. 00 
318, 162. 00 
409, 449.  .50 
473,238.00 
473, 238. 00 
532, 912. 00 
532,912,00 
532,912.00 
532, 912. 00 
679,000.44 
581,586.47 
660, 379. 30 
676, 512  44 
679, 296. 49 
737,620.18 
785,486.03 
787,566.94 


83, 339, 742. 29 
3,216,413.63 
3, 282, 724. 29 
3,038,807.94 
3,172,70.5.29 
3,073,498.23 
3, 178, 470. 94 
3,099,900.18 
3,169,438.80 
3,130,332.51 
3,299,152.07 
3, 356, 161. 86 
3,269,391.52 
3,255,048.13 
3, 311,. 520. 60 
3,261,634.20 
3,064,738.21 
3, 137, 876.  ,58 
3, 238, 066. 50 
2,836,015.27 
2,871,071.07 
2, 761, 593. 33 
2,816,788.83 
2, 872, 867. 70 
2,821,614.39 
2, 536, 946. 65 
2,586,663.87 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  105 

As  partial  remedial  or  palliative  measures  the  Commission  has  enacted 
laws  providing  for  the  payment  of  all  salaries  under  the  civil  service 
in  the  islands  in  United  States  money,  and  has  made  its  appropria- 
tions in  that  money  so  far  as  practicable.  Both  these  measures  have 
a  tendency  to  diminish  the  demand  upon  the  banks  for  Mexican  dollars 
and  to  increase  the  circulation  of  United  States  money.  It  has  also, 
by  enactment,  imposed  a  customs  tax  of  10  per  cent  on  all  Mexican 
silver  exported.  The  Commission  are  aware  that  it  is  ordinarily  unwise 
to  attempt  to  control  the  free  interchange  of  commodities  or  curren- 
cies according  to  the  varying  demands  of  trade  by  legislative  enact- 
ment, but  the  conditions  here  in  respect  to  currency  are  so  anomalous 
that  it  was  considered  necessary  to  pass  the  law  above  referred  to,  not 
as  a  general  or  permanent  enactment  or  announcement  of  principle  of 
legislation,  but  as  a  temporary  provision  in  aid  of  the  maintenance  of 
the  ratio  of  two  to  one  between  the  American  money  and  Mexican 
money  until  the  currency  can  be  placed  upon  a  fixed  and  uniform  basis. 
The  local  banks  were  engaged  in  the  rapid  exchange  with  their  cus- 
tomers of  the  Government  deposit  of  silver  into  gold,  the  silver  being 
by  these  transactions  transferred  from  the  Government  account  to  the 
account  of  private  depositors,  and  then,  standing  in  the  general  deposit 
of  the  banks,  it  was  by  them  being  rapidly  exported.  By  this  process 
the  Government  deposit  of  silver  was  being  rapidly  exhausted,  while 
the  banks  were  making  a  considerable  profit  out  of  the  export.  It  was 
considered  by  the  Commission  that  the  banks  were  under  strong  moral 
obligation  to  aid  in  the  maintenance  of  the  ratio  of  two  to  one  in  view 
of  the  fact  that  they  are  the  beneficiaries  of  the  Government  to  the 
extent  of  having  the  use,  without  interest,  of  several  million  dollars 
of  its  deposits. 

It  is  thought  that  this  enactment  will  have  a  tendency  to  retain  the 
Government's  deposit  of  Mexican  money  and  to  make  possible  the 
maintenance  of  the  ratio  stated  for  a  longer  period.  The  necessity  for 
this  legislation  might  perhaps  be  better  illustrated  b}^  the  statistics  of 
exportation  of  currency.  Between  the  27th  daj^  of  August  and  the  1st 
day  of  November,  1900,  the  two  banks  aforesaid  exported  $2,087,500, 
and  the  deposit  of  Mexican  money  belonging  to  the  Government  in 
those  two  banks  was,  during  that  same  period,  depleted  nearly  the  same 
amount.  The  Hongkong  and  Shanghai  Banking  Corporation  was  by 
far  the  more  active  in  this  business  of  exporting  Mexican  money. 
During  the  period  last  stated  it  exported  $1,935,000,  and  the  Chartered 
Bank  of  India,  Australia,  and  China  exported  $152,500.  Between  the 
17th  and  31st  of  October  $1,312,650  of  Mexican  currency  was  exported 
by  the  two  banks  referred  to  and  bj?^  private  speculators.  In  the  three 
days  that  elapsed  between  the  pul^lication  of  the  proposed  legislation 
placing  a  tax  upon  the  export  of  Mexican  dollars  and  its  enactment  on 
the  12th  day  of  November,  $1,133,500  Mexican  currency  was  exported, 


100  REPORTS    OF    THE    CIVIL    GOVERNMENT 

^500,000  of  that  sum  being  exported  by  the  Hongkong  iind  Shanghai 
Banking  Corporation,  $150,000  by  the  Chartered  Bank  of  India,  Aus- 
tralia, and  China,  and  the  remainder  by  private  speculators. 

One  very  serious  obstacle  to  the  more  extended  use  of  American 
money  has  been  the  requirement  l)y  the  local  banks  that  all  deposits, 
with  very  few  and  special  exceptions,  should  be  made,  and  all  checks 
drawn  upon  them,  in  Mexican  currency,  so  that  whenever  a  large  check 
was  drawn  by  any  Government  official  upon  the  Government  gold 
deposit,  the  person  receiving  the  check  could  not  deposit  it  as  a  gold 
deposit,  but  must  exchange  it  for  Mexican  money,  which  he  could 
then  deposit.  This  exchange  could  be  made  by  purchasing  Mexican 
dollars  at  the  market  value,  or  by  exchanging  the  gold  realized  upon 
the  check  for  Mexican  money  out  of  the  Government  deposit  of  Mexi- 
can money,  in  accordance  with  the  order  of  the  military  governor 
made  on  the  11th  day  of  August,  as  before  stated.  But  of  course  the 
holder  of  the  check  would  not  buy  Mexican  dollars  at  the  market  rate, 
but  would  obtain  his  silver  from  the  Government's  deposit,  and  then 
deposit  it  in  the  banks  to  his  individual  credit.  As  a  matter  of  fact, 
the  Mexican  money  did  not  leave  the  banks,  but  was  transferred  from 
the  Government's  deposit  into  those  of  individuals.  Meanwhile  the 
banks  have  never  done  anything,  so  far  as  we  are  able  to  discover,  to 
fulfill  their  guaranty  to  maintain  the  ratio  of  at  least  two  to  one  as 
between  American  and  Mexican  money,  made  on  August  19,  1898. 
But  in  pursuance  of  the  arrangement  and  guaranty  of  that  date,  between 
that  time  and  August  21,  1900,  they  imported  in  round  numbers 
$12,188,169  Mexican,  upon  all  of  which  they  have  been  able  to  obtain 
a  profit. 

It  is  the  opinion  of  the  Commission  that  the  banks  have  not  cooper- 
ated to  the  extent  that  they  legally  and  morally  ought  to  have  done  in 
maintaining  a  ratio  of  at  least  2  to  1  in  pursuance  of  the  guaranty  of 
August  19,  1898,  and  that  their  refusal  to  receive  deposits  in  United 
States  money  subject  to  check  is  a  direct  discrimination  against 
United  States  money,  and  has  been  one  of  the  effective  causes  of  the 
difficulties  of  the  situation. 

At  the  present  price  of  Mexican  dollars  their  export  from  the 
islands  is  profitable,  but  should  their  market  value  depreciate  slightly 
the  difficulty  would  correct  itself  and  the  ratio  of  2  to  1  could  be 
maintained  without  loss  to  anyone.  The  Commission  has  passed  a  law 
requiring  the  banks  to  receive  deposits  of  United  States  money  sub- 
ject to  check  upon  the  same  terms  as  those  accorded  to  deposits  of 
Mexican  money,  without  discrimination,  and  otherwise  regulating  the 
business  of  the  banks  so  as  to  secure  fair  treatment  to  United  States 
currency. 

The  maintenance  of  the  ratio  of  2  to  1  by  the  use  of  Government 
deposits  for  that  purpose,  as  above  detailed,  has  in  a  sense  been 


OF    THE    PHILIPPINE    ISLAND8,    1900-1903.  107 

attended  with  a  substantial  financial  loss  to  the  insular  treasury;  that 
is,  its  deposits  of  Mexican  monej^,  which  have  been  exchanged  for 
gold  at  the  ratio  of  2  to  1,  were  worth  more  than  the  sum  received 
for  them  in  United  States  money,  and  could  have  been  sold  here  or  in 
Hongkong  for  more  money,  but  if  so  sold  the  established  ratio  would 
have  been  destroyed  and  United  States  money  have  been  depreciated. 
The  advantages  of  a  stable  currency  have  more  than  compensated  for 
this  apparent  loss;  but,  in  another  sense,  the  loss  is  only  apparent,  not 
real.  The  treasury  has  received  for  its  Mexican  money  as  much  as  it 
cost,  and  for  most  of  it  more,  since  it  was  mainly  taken  into  the  treas- 
ury when  the  prevailing  ratio  was  such  that  $1  of  United  States  money 
was  the  equivalent  of  more  than  $2  of  Mexican. 

It  is  apparent  that  as  long  as  the  principal  currency  of  the  islands 
is  Mexican  money,  the  ratio  of  exchange  between  it  and  United  States 
money  will  be  subject  to  constant  fluctuations,  not  only  as  the  market 
value  of  silver  changes,  but  more  especially  as  the  artificial  demand  for 
Mexican  dollars  may  increase  or  decrease  in  the  great  contiguous  Chinese 
markets.  Every  such  fluctuation  operates  to  the  injury  of  all  business 
interests  except  that  of  the  local  banks  and  speculators  in  currency. 
The  natives  of  the  islands  have  been  so  long  accustomed  to  the  silver 
peso  as  the  standard  of  exchange  that  it  will  be  difiicult  to  induce 
them  speedily  to  make  general  use  of  the  American  dollar.  The  value 
of  their  labor  and  commodities  is  fixed  in  pesos,  and  if  the  American 
dollar  should  be  substituted  as  the  only  legal  tender,  the  natives  are 
quite  liable  to  demand  the  same  number  of  dollars  as  they  have  here- 
tofore received  pesos  for  the  same  labor  or  commodity,  and  thus  prices 
would  be  advanced  very  largely,  and  progress  would,  for  a  time,  be 
greatly  retarded.  It  seems  to  be  desirable  that  some  substitute  for  the 
Mexican  dollar,  as  well  as  for  the  Spanish-Filipino  dollar,  should  be 
provided  which  would  be  uniform  in  its  relation  to  the  United  States 
dollar,  and  would  commend  itself  to  general  public  use  as  being  sub- 
stantially what  they  have  long  been  accustomed  to.  We  have  inter- 
viewed a  large  number  of  leading  business  men  of  the  islands,  and 
they  substantially  all  concur  in  the  opinion  that  it  would  be  injurious 
to  business  to  place  the  islands  immediately  upon  an  absolute  gold 
standard. 

As  a  solution  of  the  problem  it  has  been  suggested,  and  the  sugges- 
tion has  met  the  approval  of  the  business  men  here  generally,  that 
the  United  States  dollar,  or  a  theoretical  United  States-Filipino  gold 
peso,  of  the  value  of  half  a  dollar,  like  the  theoretical  gold  yen  which 
is  the  unit  of  currency  in  Japan,  should  be  made  the  standard  of 
value,  but  that  a  silver  United  States-Filipino  peso,  containing  a  small 
percentage  less  silver  than  the  Mexican  dollar,  should  be  coined,  which 
would  be  receivable  in  business  transactions  as  the  equivalent  of  50 
cents  in  United  States  money,  together  with  convenient  subsidiary 


108  REPORTS    OF    THE    CIVIL    OOVKKNMKNT 

coins  of  the  s>uiiie  character.  The  uinount  of  .silver  in  the  peso  should 
bo  such  a  percentage  less  than  that  in  the  Mexican  dollar  that  its 
intrinsic  value  would  not  at  any  time  warrant  its  export  from  the 
islands,  but  its  convertibility  into  American  money  at  uniform  fixed 
rates,  guaranteed  by  the  United  States,  would  make  it  a  convenient 
and  useful  currenc}^  for  ordinary  business  transactions  in  the  islands. 
Foreign  trade  would  be  conducted  upon  a  gold  basis,  and  domestic 
transactions  upon  the  same  basis,  but  with  the  token  silver  currency 
above  indicated  as  an  available  method  of  conducting  smaller  trans- 
actions within  the  islands.  The  Mexican  and  Filipino  silver  coins  in 
the  islands  could  be  recoined  into  the  new  United  States-Filipino 
coins  as  fast  as  they  came  into  the  treasury,  which  would  within  a 
comparatively  short  time  perform  the  functions  now  performed  by 
the  Mexican  and  Filipino  silver  coins.  At  a  suitable  later  date  the 
Mexican  and  Filipino  coins  could  all  be  brought  in  for  recoinage  by  a 
law  providing  that  they  should  not  be  legal  tender  after  a  date  fixed 
in  the  law.  The  local  mint  can  be  put  in  order  for  such  recoinage 
within  one  month's  time,  according  to  the  report  of  Maj.  L.  A.  Lover- 
ing,  acting  inspector-general. 

In  order  that  the  present  condition  of  the  mint  may  be  fully  under- 
stood, we  annex  the  report  of  Major  Lovering,  made  under  date  of 
October  15,  1900,  and  it  is  marked  "Exhibit  I;"  and  the  profit  from 
the  recoinage  would  much  more  than  pay  the  expense  of  such  repair. 
The  S3^stem  here  indicated  was  outlined  in  a  cablegram  to  the  Secretary 
of  War,  dated  the  2d  of  September  last.  It  is  impossible  to  state, 
with  any  degree  of  accuracy,  the  amount  of  Mexican  and  Filipino  silver 
now  in  the  islands.  A  great  portion  of  the  Mexican  silver  that  was 
here  prior  to  the  period  of  American  occupancy  was  smuggled  in,  and 
there  are  no  statistics  to  show  its  amount.  The  estimated  amount  of 
Mexican  and  Filipino  currency  in  the  islands  is  35,000,000  or  40,000,000 
pesos.  The  amount  of  United  States  money  in  the  islands  is  con- 
stantly increasing  by  reason  of  the  funds  that  are  sent  here  for  the 
pa3'ment  of  military  expenses.  If  the  Spooner  bill,  or  other  like  leg- 
islation, should  be  enacted  by  Congress,  it  is  thought  by  the  Commis- 
sion that  further  Congressional  action  would  be  unnecessary  for  the 
execution  of  the  plan  here  outlined.  Without  such  a  coinage,  or  some 
other  scheme  that  shall  accomplish  substantially  the  same  result,  it 
will  be  difficult  or  impossible  to  maintain  the  existing  ratio  of  2  to  1, 
if  the  price  of  silver  and  of  Mexican  dollars  continues  to  appreciate  in 
the  markets  of  the  world.  Of  course,  the  Government  can  purchase 
Mexican  dollars  and  import  them,  and  so  undertake  by  main  force  to 
maintain  the  existing  ratio;  but  so  long  as  it  should  continue  to  be 
profitable  to  export  Mexican  dollars,  and  there  should  be  no  restric- 
tions upon  such  export,  it  is  apparent  that  the  Mexican  dollars  pur- 
chased by  the  Government  for  the  maintenance  of  the  ratio  between 


OF    THE    PHILTPPINE    ISLANDS,   1900-1903.  109 

the  two  would  at  once  come  iuto  the  hands  of  speculators,  in  exchange 
for  American  currency,  and  be  exported  at  a  profit,  so  that  the  process 
would  be  a  continued  one  of  heavy  expenditures  on  the  part  of  the 
Government,  largely  for  the  benefit  and  profit  of  the  l)anks  or  private 
speculators.  The  law  imposing  an  export  duty  upon  Mexican  money 
was  passed  in  part  for  the  purpose  of  meeting  this  contingency. 

It  is  not  considered  necessary  to  embrace  in  this  report  further 
statistics  as  to  the  currency  situation,  because  the  treasurer  of  the 
islands  in  September  last  made  to  the  Secretary  of  War,  through  the 
military  governor,  a  report  containing  all  available  statistics  down  to 
that  time,  and  conditions  have  not  changed  materially  since  the  date  of 
that  report,  except  that  the  amount  of  Mexican  currency  to  the  credit 
of  the  insular  government  in  the  banks  is  now  materially  less  than 
at  that  time,  while  the  gold  deposit  has  largely  increased,  as  shown. 

BANKS. 

The  report  of  the  treasurer  above  referred  to  contains  statements  as 
to  the  financial  condition  of  the  banking  institutions  doing  business  in 
the  islands,  and  the  reports  of  each  of  such  institutions,  and  that  infor- 
mation need  not  here  be  repeated.  As  to  the  two  principal  banks,  the 
Hongkong  and  Shanghai  Banking  Corporation,  and  Chartered  Bank  of 
India,  Australia  and  China,  a  statement  of  their  local  condition  throws 
little  light  upon  the  security  of  the  Government  deposits  with  them. 
It  must  depend  upon  the  solvency  of  the  two  corporations  as  a  whole, 
and  not  upon  the  local  cash  balances  or  available  assets.  Both  banks 
are  powerful  institutions,  having  a  large  capital  and  great  reserve,  all 
of  which  stand  as  security  for  the  Government  deposits,  aside  from 
the  $1,000,000  of  bonds  which  they  have  deposited  for  that  purpose. 
There  is  nothing  known  to  the  Commission  that  would  indicate  any 
doubt  as  to  the  entire  safety  of  the  insular  deposits  in  those  banks,  but 
in  accordance  with  the  recommendations  of  the  Secretary  of  War 
legislation  has  been  enacted  providing  for  reports  by  all  the  banking 
institutions  in  the  islands  to  the  treasurer,  at  such  times  as  he  shall 
call  for  them,  and  requiring  him  to  call  for  them  with  sufficient  fre- 
quency to  enable  him  to  be  thoroughly  informed  as  to  their  condition 
from  time  to  time,  and  also  providing  for  an  examination  of  the  insti- 
tutions by  the  treasurer.  The  business  of  the  banks  here  has  been 
highly  profitable  since  American  occupancy. 

It  is  very  desirable  that  banks  should  be  established  in  these  islands 
organized  under  laws  of  the  United  States.  Apparently,  Congres- 
sional action  will  be  necessary  to  extend  the  system  of  national  banks 
to  the  Philippine  Islands  and  to  enable  such  institutions  to  be  organ- 
ized here  under  the  safeguards  thrown  around  them  by  our  laws.  To 
be  able  to  compete  with  the  banks  now  doing  business  in  the  Philip- 
pine Islands,  a  national  bank  should  have  ample  capitiil.  The  trans- 
23181—04 8 


110  REPORTS    OF    THE    CIVIL    GOVERNMENT 

actions  in  cxchang-c,  growing-  out  of  tlic  large  imports  and  exports, 
involve  great  sums  in  the  aggregate  and  in  individual  transactions, 
and  an  American  liank  ought  to  l)e  able  to  meet  the  requirements 
of  the  largest  business  interests  in  this  respect.  The  deposits  of  the 
funds  of  the  insular  govei'nmcnt  would,  doubtless,  to  a  considerable 
extent,  be  made  in  United  States  banks,  and  their  deposits  from  indi- 
vidual commercial  establishments  would  be  large;  the  business  of 
exchange  would  be  highly  profitable,  and,  as  the  industry  and  com- 
merce of  the  islands  continue  to  be  developed,  money  would  be  in 
demand,  so  as  to  keep  all  available  capital  safely  employed  all  the 
time.  Such  banks,  also,  would  relieve  the  currency  situation  to  a 
degree,  b}"  furnishing  paper  money  for  ordinary  business  uses,  which 
has  a  great  advantage  over  the  bulky  silver  now  generally  in  use. 

The  existing  law  relating  to  the  Filipino-Spanish  bank  is  fully  stated 
in  the  documents  contained  in  the  Treasurer's  report  above  referred 
to.  The  bank  was  in  a  somewhat  straitened  condition  soon  after  the 
American  occupancy,  owing  to  the  large  advances  which  were  made  to 
the  Government  of  Spain,  but  its  claim  against  the  Government  of 
Spain  has  been  adjusted,  and  there  is  nothing  now  to  indicate  that  the 
bank  is  not  in  a  safe  condition.  It  is  paying  8  per  cent  dividends  and 
its  stock  sells  at  a  considerable  premium.  The  amount  of  bank  notes 
or  bills  issued  by  it  under  its  charter,  and  outstanding,  on  August 
31,  1900,  was  $2,700,750  Mexican.  The  amount  outstanding  at  a  cor- 
responding date  in  1898  was  $2,608,400,  and  in  1899,  $2,077,895.  It  is 
supposed  that  a  considerable  portion  of  this  paper  money  has  been  lost 
or  destroyed. 

CUSTOMS. 

The  custom-house  at  Manila  was  opened  for  business  by  the  United 
States  military  government  August  20,  1898.  The  Spanish  tariff  and 
customs  regulations  found  in  force  were  continued. 

In  anticipation  of  the  occupation  of  Manila  a  translation  of  the 
Spanish  tariff,  with  some  modifications,  had  been  prepared  in  Wash- 
ington prior  to  the  arrival  of  the  troops,  and  by  order  of  the  Presi- 
dent, dated  July  13,  1898,  directions  were  given  to  proclaim  and 
enforce  this  tariff  in  the  islands  as  soon  as  the  United  States  forces 
obtained  possession.  This  tariff  and  the  accompanjdng  orders  were 
received  at  Manila  in  September,  after  the  custom-house  had  been  in 
operation  for  some  weeks.  It  was  at  once  published,  to  take  effect 
October  1, 1898.  The  proclamation  of  this  new  tariff  and  the  short 
notice  given  of  the  change  brought  forth  many  protests,  petitions, 
and  requests  from  merchants  and  other  persons  doing  business  in 
Manila,  and  it  was  decided  by  the  military  governor  that  if  put  into 
effect  at  once  the  new  customs  duties  would  derange  trade  and  preju- 
dice American  interests.  He  therefore  postponed  its  enforcement 
until  November  10, 1898.     Meanwhile  a  board  of  oflicers  was  appointed 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  Ill 

to  consider  the  modification  of  the  consumption  or  excise  taxes  on 
cigars  and  cigarettes  which  had  been  proposed  by  the  authorities  in 
Washington  in  connection  with  the  tariff.  Upon  recommendation 
of  this  board  these  excise  taxes  were  suspended.  In  October,  1898,  an 
expert  on  revenue  matters  sent  out  by  the  War  Department  to  aid  in 
the  preparation  of  the  tariff  arrived  at  Manila,  and  he  was  instructed 
to  make  such  revision  as  seemed  needful.  The  tariff  and  regulations 
prepared  by  him  were  practicall}"  a  translation  of  the  Spanish  tariff 
and  regulations,  and  were  put  into  force  November  10,  1898,  in  place 
of  the  tariff  above  referred  to,  which  had  been  prepared  in  Washing- 
ton. The  tariff  and  regulations  thus  established,  with  some  slight 
modifications  which  appeared  necessary  from  time  to  time,  are  still  in 
effect. 

The  Spanish  tariff  and  customs  regulations  were  framed  to  meet  con- 
ditions essentially  different  from  those  which  have  prevailed  under 
American  rule,  and  in  consequence  there  is  an  urgent  need  for  revi- 
sion. Objections  have  been  made  both  to  the  tariff  itself  and  to  the 
regulations  under  which  it  is  enforced.  The  objections  to  the  regula- 
tions are,  however,  of  much  greater  frequency  than  those  to  ttie  tariff. 
It  is  complained  that  the  present  regulations  involve  unnecessary  delay 
and  expense  in  clearing  goods,  and  constitute  a  serious  restraint  on 
trade.  The  rates  of  duty  have  been  criticised  in  numerous  instances, 
and  there  are  serious  faults  in  the  classification,  but  there  has  been 
comparatively  little  complaint  with  the  tariff  as  a  whole. 

A  thorough  revision  of  the  tariff  and  of  the  regulations  was  begun 
in  June,  1900,  by  a  board  of  officers  appointed  by  the  military  gov- 
ernor under  instructions  from  the  War  Department.  By  order  of  the 
Secretary  of  War  this  board  reported  to  the  United  States  Philippme 
Conunission  on  August  25, 1900,  and  turned  over  with  its  report  all  the 
information,  correspondence,  papers,  etc.,  which  it  had  collected  as 
bearing  on  the  revision.  The  United  States  Philipppine  Commission 
has  taken  up  the  task  of  revising  the  tariff,  and  has  a  new  tariff  law 
nearl}^  completed.  When  completed  and  approved  the  new  tariff  law 
will  be  published,  and  a  sufficient  interval  allowed  before  it  goes  into 
effect  to  enable  importers  to  adjust  their  business  thereto.  In  the 
interval  the  regulations  will  be  revised  in  the  form  of  an  administrative 
act  to  go  into  effect  on  the  same  date  as  the  tariff. 

The  Spanish  tariff  now  in  force  consists  of:  (A)  specific  duties  on  all 
imports,  (B)  surtaxes  for  harbor  improvements,  (C)  so-called  ad  valorem 
taxes  on  imports,  (D)  consumption  taxes  on  certain  imports,  (E)  mis- 
cellaneous charges,  and  (F)  export  duties.  In  its  present  form  it 
originated  in  the  royal  decree  of  January  7,  1891.  This  decree  estab- 
lished specific  duties  on  all  goods  imported  to  these  islands,  and  upon 
certain  goods  exported.  Other  taxes  were  established  subsequently,  as 
will  be  explained  below. 


112  KErORTS    OF    THE    (^IVIL    (K)VEKNMENT 

A. — The  specific  duties. — Thcdccrcc  of  1891  cstabllshod  specific  dxitios 
upon  all  imports  into  the  islands,  and  upon  certain  exports  from  the 
islands.  There  were  in  the  tariff  no  ad  valorem  duties  properly  so  called. 
The  specific  duties  established  by  this  decree  were  based  in  large  meas- 
ure upon  the  rates  prevailing  prior  to  1891,  Those  rates  were  origi- 
nall)'^,  that  is,  prior  to  1828,  10  per  cent  ad  valorem.  (For  an  account 
of  the  tariff  board  created  in  1828,  see  report  of  the  first  Philippine 
Commission,  vol.  1,  p.  78.)  But  the  practice  of  fixing  the  values  at 
which  goods  imported  might  be  declared  and  of  levying  10  per  cent  of 
these  fixed  values  developed  a  tariff  of  fixed  charges,  and,  with  certain 
exceptions,  the  royal  decree  above  referred  to  simply  transformed 
these  fixed  charges  into  regular  specific  duties.  The  departures  from 
the  original  principle  of  making  the  duty  equal  10  per  cent  of  the 
value  of  the  imports  were  made  in  some  cases  to  protect  island  indus- 
tries, but  they  were  mainly  intended  to  favor  the  market  for  Spanish 
goods. 

In  accordance  with  the  general  principle  governing  the  Spanish 
colonial  policy  goods  or  merchandise  coming  from  Spain  and  entering 
the  ports  of  the  islands  under  the  Spanish  flag  were  exempt  from  the 
payment  of  these  duties.  The  United  States  Government  continued 
this  exemption  on  all  goods  leaving  a  Spanish  port  prior  to  April  25, 
1898,  the  date  of  the  formal  declaration  of  war  by  the  United  States, 
and  arriving  in  these  islands  prior  to  November  10, 1898.  On  the  lat- 
ter date  this  privilege  ceased,  and  since  then  Spanish  goods  have  paid 
the  same  duties  as  those  from  other  nations. 

B. — Harbor  improvement  tax. — As  early  as  1880  a  board  for  harbor 
improvements  (Junta  de  Obras  de  Puerto  de  Manila)  had  been  estab- 
lished at  Manila  under  roj^al  decree,  looking  to  the  construction  of 
requisite  harbor  facilities.  To  furnish  a  fund  for  this  purpose  the 
board  was  allowed  to  collect  a  tax  amounting  to  20  per  cent  of  the 
regular  duties  on  all  merchandise,  and  in  addition  thereto.  Goods 
originating  in  Spain  paid  this  tax,  although  exempt  from  the  regular 
duties.  It  was  collected  by  the  board  itself  and  not  by  the  customs 
authorities. 

In  1891  this  surtax  was  reduced  from  20  to  10  per  cent,  and  instead 
of  being  confined  to  Manila  was  extended  to  the  other  ports  of  the 
islands.  The  collection  of  the  tax  from  that  time  on  was  made  by  the 
customs  authorities  and  the  funds  were  turned  into  the  treasury.  But 
the  moneys  so  obtained  were,  according  tc  the  tenor  of  the  royal 
decree,  to  be  reserved  for  the  improvement  of  the  "harbor  in  the  ports 
at  which  it  was  collected.  This  surtax  of  10  per  cent  being  in  force 
at  the  time  of  the  American  occupation  was  continued,  and  is  now  an 
integral  part  of  the  customs  tariff'. 

C. — The  so-called  Ad  Valorem  Taxes. — For  a  number  of  years,  begin- 
ning with  1890,  the  Spanish  Government  had  experimented  with  taxes 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  113 

for  "loading"  and  '"unloading"  (carga  and  descarga)  as  a  possible 
substitute  for  export  taxes.  The  result  of  these  experiments  was  the 
establishment  in  1896  of  an  "unloading"  tax  (descarga)  of  2  per  cent 
ad  valorem  on  all  goods  coming  into  the  islands,  including  those  from 
Spain.  This  tax  was  based  upon  a  table  of  fixed  ofiicial  values  pre- 
pared in  Spain  under  the  provisions  of  the  royal  decree  of  August  16, 
1895.  This  table  of  values  was  given  ofiicial  recognition  in  the  Phil- 
ippines by  order  of  General  Blanco,  August  28,  1896,  and  the  2  per 
cent  "descarga"  was  in  force  at  the  time  of  the  American  occupation. 
Although  this  tax  was  established  just  after  the  discovery  of  the  insur- 
rection (August  19,  1896),  it  does  not  appear  that  it  was  conceived  as 
a  means  of  raising  additional  revenues  for  the  prosecution  of  the  war. 
It  was  simply  a  substitute  for  the  older  taxes  at  varying  rates  for 
"loading"  and  "unloading," 

One  year  later,  by  royal  decree,  dated  August  11,  1897,  and  put 
into  force  by  order  of  General  Rivera,  August  20,  1897,  the  Spanish 
Government  established  an  extraordinary  tax  of  6  per  cent  ad  valorem 
based  on  the  aforementioned  table  of  ofiicial  values.  This  tax  covered 
Spanish  goods  as  well  as  those  of  other  countries.  It  appears  to  have 
been  purely  a  war  tax.  It  was  still  in  force  when  the  American  forces 
took  possession  of  Manila. 

As  both  the  2  per  cent  "descarga"  and  the  6  per  cent  extraordinary 
tax  were  levied  on  the  table  of  values,  the  United  States  custom-house 
simply  added  the  two  together  and  levied  8  per  cent  ad  valorem, 
so  called,  upon  all  imports,  in  addition  to  the  specific  duties  according 
to  the  table  of  ofiicial  values. 

D. — Consumption  taxes. — By  royal  decree,  dated  August  24,  1896, 
and  put  into  force  in  the  islands  August  27,  1896,  certain  so  called 
consumption  taxes,  to  be  collected  by  the  customs  authorities,  were 
established.  These  took  the  form  of  additions  to  the  import  taxes  on 
spirituous  liquors,  beer  and  cider,  vegetables,  flour,  salt,  and  on  petro- 
leum and  other  mineral  oils.  The  tariff  prepared  in  Washington  pro 
posed  the  removal  of  these  taxes  so  far  as  vegetables,  flour,  salt, 
petroleum,  and  mineral  oils  were  concerned,  and  the  substitution  of 
an  internal-revenue  tax  on  cigars  and  cigarettes.  But  a  special  board  of 
officers,  appointed  by  the  military  governor  on  the  21:th  of  September, 
1898,  to  consider  the  effect  of  this  change,  reported  that  the  proposed 
tax  was  inequitable  as  between  cigars  and  cigarettes,  and  recommended 
that  this  section  of  the  law  be  suspended.  (See  report  of  Lieutenant- 
Colonel  Spurgin,  Sixth  U.  S.  Infantry,  collector  of  customs,  dated 
Manila,  P.  I.,  September  27,  1899,  published  in  the  Appendix  to  the 
Annual  Report  of  Major-General  Otis,  military  governor  of  the 
Philippine  Islands,  Manila,  1899,  Appendix  S.)  The  result  was  that 
the  old  Spanish  consumption  taxes  were  restored  in  toto,  and  that  they 
are  still  in  force. 


114  llKl'ORTS    OF    THE    OIVIL    GOVERNMENT 

E. — Miscellaneous  charges. — In  addition  to  the  foregoing  taxes, 
which  constitute  the  tariff  proper,  all  goods  exported  pay  wharf 
charges  and  harbor  dues  of  1^  pesos  per  ton  of  1,000  kilos,  and  all 
goods  imported  and  destined  for  transhipment  to  other  ports  in  the 
islands  pay  wharfage  of  one-half  peso  per  ton  of  1,000  kilos.  The  ves- 
sels carrying  the  goods  also  pay  on  entry  at  an}^  port  a  tonnage  tax  or 
light-house  dues  of  0.10  peso  per  net  ton  and  stamp  taxes  on  the  ship's 
papers;  the  latter  amount  in  all  to  ■!  pesos. 

F. — Export  duties. — The  principal  exports  of  the  islands,  namely, 
hemp  (abaca),  indigo,  rice,  sugar,  cocoanuts  (copra),  and  tobacco,  were 
each  subject  to  a  specific  duty.  These  export  duties  have  been  in  oper- 
ation for  many  years,  and  have  yielded  a  revenue  as  high  as  700,000 
pesos  in  one  year.  For  the  two  years  1891  and  1892  they  were  sus- 
pended, and  the  effort  was  made  to  obtain  an  equal  rcA^enue  in  the  form 
of  the  taxes  for  loading  and  unloading,  referred  to  above.  The  export 
duties  were,  however,  restored  in  1893,  and  are  still  in  force.  The 
rates  are  extremely  low,  amounting  to  about  2^  per  cent,  and  there  is 
no  evidence  to  show  that  they  affect  the  market  for  the  products  taxed. 
As  the  industries  thus  taxed  do  not  contribute  in  any  other  way  to  the 
support  of  the  government,  there  seems  to  be  no  objection  to  the  reten- 
tion of  these  revenue  taxes. 

The  items  included  under  the  first  four  of  the  above  heads  constitute 
a  fixed  charge  for  each  item  imported,  as  will  be  more  readily  seen  from 
the  following  calculation  of  the  total  duty  on  100  kilos  of  salt: 

Pesos. 

Duty  (according  to  the  tariff  of  specific  duties) 650 

Surtax  ( 10  per  cent  of  the  above  duty) 065 

Ad  valorem  tax  (8  per  cent  of  the  official  value,  0.40  peso) 032 

Consumption  tax - 1. 000 

Total  duty 1.  747 

The  amount  of  the  total  duty  on  any  one  article  per  unit  bf  weight 
never  varied,  although,  under  the  Spanish  administration  and  for  the 
first  two  years  of  the  American  administration,  each  item  was  calcu- 
lated as  in  the  above  illustration.  For  the  convenience  of  the  public 
and  of  the  customs  authorities  themselves,  a  pamphlet  was  published- 
September  last  showing  the  consolidated  duties  on  each  article.  Had 
this  been  done  in  the  beginning,  much  misunderstanding  of  the  charges* 
and  many  errors  in  the  calculation  of  the  duties  would  have  been 
avoided. 

It  is  somewhat  difficult  to  arrive  at  an  estimate  of  the  exact  liurden 
which  the  tariff'  lays  on  the  commerce  of  the  islands,  owing  to  the  fact 
that  the  invoice  values  are  not  used  as  a  basis  for  calculating  the  duties 
and  do  not  necessarily  correspond  to  the  true  market  values.  At  the 
same  time  there  is  no  temptation  to  understate  the  values,  as  would  be 
the  case  if  the  declared  values  were  used  as  the  basis  for  the  tax.  The 
statistics  published  by  the  Spanish  Government  end  with  the  year  1894, 
and  the  records  for  later  years  are  missing.     As  most  of  the  rates  were 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903. 


115 


altered  between  that  date  and  the  American  occupation,  these  older 
records  are  not  particuiarl}-  useful  for  comparisons.  Moreover,  we 
can  not  now  ascertain  the  principles  on  which  the  Spanish  statistics 
were  compiled,  and  can  not,  therefore,  correct  the  many  apparent 
errors  and  contradictious  with  which  these  reports  are  filled.  But 
taking  the  figures  as  we  have  them,  it  appears  that  the  Spanish  tariff 
imposed,  in  1891,  a  burden  of  about  16  per  cent  on  the  commerce  of 
the  islands,  goods  from  Spain  being  excluded  from  the  calculation. 
Taking  the  declared  values  as  a  basis,  the  total  duties  collected  by  the 
United  States  custom-houses  in  the  islands  on  all  dutiable  imports 
amounted  to  23. T  per  cent  ad  valorem,  which  corresponds  quite  closely 
to  the  result  obtained  above  from  the  Spanish  statistics,  if  allowance 
be  made  for  the  8  per  cent  ad  valorem  taxes  which  were  added  to  the 
Spanish  tariff  between  1894  and  1898.  On  all  the  imports,  free  and 
dutiable  together,  the  burden  is  about  21  per  cent.  It  is  safe  to  say, 
therefore,  that  the  import  duties  consume  about  one-fifth  of  the  value 
of  the  goods. 

It  is,  however,  much  more  important  to  consider  the  effect  of  the 
duties  on  particular  articles.  A  duty  on  some  one  article  so  high  as  to 
be  well  nigh  prohibitory  would  not  affect  the  general  average,  as  such 
articles  contribute  very  little  to  the  total  duties  paid. 

Of  the  twenty-one  commodities  the  total  importation  of  which 
exceeded  $100,000  gold  during  the  calendar  j^ear  1899,  one,  namely, 
glass,  paid  9.1  per  cent,  and  one,  petroleum,  127.2  per  cent  of  the  in- 
voice values.  The  following  table  shows  that  the  burden  of  the  duties 
is  very  unequally  distributed  among  these  twenty-one  commodities: 

Valiies  of  importations  and  duties  collected  on  commodities  the  total  importation  of  which 
exceeded  ^100,000  {gold)  for  the  year  1899. 

[Values  are  stated  in  terms  of  United  States  gold  coin.] 


Commodity. 

Cotton: 

Raw  (391,291  pounds) , 

Yarn  (1,033,919  pounds) , 

Manufactured 

Rice  (148,527,169  pounds) 

Glas.s 

Paper  and  manufactures 

Wines 

Flour 

Books  (paper  covered  free) 

Iron: 

Raw 

Cutlery 

Machinery,  etc 

Opium 

Spirits 

Malt  liquors,  etc 

Eggs 

Matches 

Silk  manufactures 

Cocoa 

Prepared  foods 

Earthenware 

Petroleum 

Paints  and  colors 

Shoes  and  sandals 

Meat 

Total  dutiable 

Total  imported 


Value. 


828, 525 
542, 382 
,831,298 
,349,666 
574,456 
510,343 
420, 196 
362, 798 
312,895 

20G, 771 
38, 646 
116, 312 
276,676 
276,213 
275, 769 
187, 325 
163, 954 
163, 374 
160, 679 
155,727 
150,  :M2 
144,877 
139, 771 
123,211 
101,708 


16, 820, 393 
18, 707, 483 


Duty. 


SI,  713 
85, 744 
994, 105 
449, 882 
52,810 
98,881 
101,266 
73,504 
20, 357 

40,030 
6.441 
18, 454 
92, 679 
121,541 
99,060 


32,275 
34,156 
19,516 
14,779 
22, 723 
184,388 
11,362 
23, 236 
30,007 


3,364,090 
3,36-1,090 


Rate. 


Per  cent. 

6.0 
15.6 
25.6 
18.2 

9.1 
19.3 
24.2 
20.2 

6.5 

19.3 
16.6 
15.8 
33.4 
44 
86.2 
Free. 
19.6 
20.8 
12 

9.4 
15 
127.2 

8.1 
18.8 
29.6 


116  REPORTS    OF    THK    CIVIL    GOVERNMENT 

One  striking  characteristic  of  the  Spanish  tariff  is  that  it  discrimi- 
nates in  a  marked  way  against  the  poor  and  in  favor  of  the  rich.  Thus, 
in  the  above  table  it  will  be  seen  that  cotton  cloth  and  rice,  the  poor 
native's  dress  and  food,  pay  25.6  per  cent  and  18.2  per  cent,  respectively, 
while  silk  and  prepared  foods  pay  only  20.8  per  cent  and  9.4  per  cent, 
respectively.  Beer  is  not  a  beverage  of  large  consumption  among  the 
natives  and,  moreover,  the  Spanish  duty  on  beer  protected  an  industry 
for  which  a  monopoly  was  claimed.  But,  nevertheless,  it  seems  remark- 
able that  the  duty  on  beer  should  be  0.927Y  peso  per  liter  when  the 
duty  on  champagne  is  only  0.355  peso  per  liter.  The  application  of 
specific  duties  to  classes  containing  both  high  and  low  priced  goods 
caused  a  similar  discrimination  in  favor  of  the  I'ich.  Thus  boots  and  shoes 
of  all  kinds  pay  the  same  rate,  lamp  chimneys  and  cut-glass  decanters 
are  in  the  same  class,  and  a  fireproof  safe  pays  at  the  same  rate  per 
100  kilos  as  a  bicycle  or  a  typewriter.  The  taxation  of  articles  accord- 
ing to  their  component  materials  operates  in  many  cases  in  the  same 
direction.  Thus,  for  example,  clockworks,  unfinished,  pay  duty  as 
"common  wrought  iron  or  steel  in  pieces  of  less  than  25  kilos  each," 
or  at  the  same  rate  that  is  applied  to  horseshoes.  Other  illustrations 
of  each  of  these  characteristics  can  be  found  in  almost  every  number 
of  the  tariff. 

A  number  of  infelicities  arise  from  the  system  of  levying  duties 
upon  complex  manufactures  according  to  the  materials.  Thus,  elec- 
trical appliances  pay  duty  as  iron,  brass,  porcelain,  rubber,  lead,  etc., 
in  proportions  which  it  is  always  diflicult  to  adjust  to  the  mutual  sat- 
isfaction of  the  importer  and  of  the  custom-house  officials. 

While  there  is  no  distinct  discrimination  against  American  products, 
some  of  them  stand  under  peculiar  disadvantages.  Thus,  in  cotton 
goods  the  duty  per  yard  increases  with  the  number  of  threads  per 
square  inch,  and  with  the  weight  in  such  a  way  that  the  American  cot- 
tons have  to  pay  a  higher  duty  in  proportion  to  value  than  the  heavily 
clayed  German  and  English  goods  with  which  they  most  directly  com- 
pete. The  duties  on  smoked  or  salted  meats  and  on  canned  goods  are 
so  high  that  these  important  American  products  are  practically  ex- 
cluded. In  the  revision  of  the  tariff*  care  has  been  taken  to  see  that 
American  goods  have  as  good  an  opportunity  to  enter  this  market  as 
those  of  any  other  nation. 

The  increase  in  the  commerce  of  the  islands  since  the  American 
occupation  and  the  consequent  increase  in  the  revenues  has  been  phe- 
nomenal. This  can  not  be  regarded  otherwise  than  as  gratifying  evi- 
dence of  the  general  confidence  which  our  administration  has  assured. 

The  largest  importations  for  any  one  year  given  in  the  Spanish 
reports  available  were  in  1894,  when  the  total  was  28,529,777  pesos 
(about  $14,264,888)  and  the  duties  on  these  imports  amounted  to 
3,695,446  pesos.     (Spanish  goods   valued  at  10,509,937  pesos   were 


OF    THP:    PHILIPPINE    ISLANDS,    1900-1903.  117 

admitted  at  reduced  rates.)  The  imports  for  the  calendar  year  1899, 
with  only  three  ports  open  and  two  of  these  for  only  a  part  of  the 
year,  were  42,170,362  pesos  (about  $21,088,181)  and  the  duties  col- 
lected amounted  to  7,855,521  pesos  (about  $3,927,760).  In  the  nine 
months  from  January  1  to  September  30,  1900,  the  imports  have  been 
33,655,518  pesos,  and  the  indications  are  that  they  will  exceed 
50,000,000  pesos  before  the  close  of  the  year.  These  figures  do  not 
include  any  goods  imported  by  the  commissary  or  quartermaster  for 
the  use  of  the  Army.  Briefly  stated,  the  imports  were  17  per  cent 
greater  the  first  year,  and  75  per  cent  greater  the  second  year,  than 
under  the  most  favorable  circumstances  under  Spanish  rule.  That 
this  increase  should  occur  in  the  face  of  actual  warfare,  and  of  the 
disturbed  conditions  of  commerce  and  industry  resulting  from  the 
war,  makes  it  all  the  more  significant.  The  imports  from  all  countries 
except  Spain  have  increased;  those  from  Spain  have  fallen  off  about 
one-half,  i.  e.,  from  10,509,937  pesos  in  1894,  to  5,249,758  in  1899. 

The  tables  marked  Exhibit  K,  show  the  business  of  the  custom- 
houses at  the  different  ports  since  they  were  opened  for  business  under 
American  authority. 

THE    PRESENT   SYSTEM   OF   INTERNAL   TAXES. 

The  sources  of  internal  revenue  are  of  five  classes: 

1.  The  so-called  industrial  taxes. 

2.  The  urbana  taxes. 

3.  The  stamp  taxes. 

4.  The  sale  of  certificates  of  registration  (cedulas  personales)^ 

5.  The  public  domain. 

The  industrial  taxes  and  the  urbana  taxes  together  constitute  prac- 
tically an  income  tax  of,  roughly,  5  per  cent  on  the  net  income  of  persons 
engaged  in  industrial  and  commercial  pursuits  and  on  the  owners  of 
improved  city  property.  The  so-called  industrial  taxes  may  be  divided 
into  two  classes:  First,  those  levied  upon  persons  whose  salaries, 
emoluments,  or  profits  are  easily  ascertainable.  In  this  class  the  rate 
is  5  per  cent  upon  the  annual  salaries  or  profits.  Second,  those  levied 
upon  persons  whose  profits  could  bo  readily  concealed.  In  this  class 
the  assessment  is  made  upon  the  basis  of  certain  easily  ascertainable 
characteristics  of  the  business  in  which  the  taxpayer  is  engaged,  and 
the  rates  are  in  the  form  of  a  tariff,  the  amount  charged  in  each  case 
being,  roughly,  the  equivalent  of  5  per  cent  of  the  average  annual 
profits.  In  both  classes  the  rate  is  lower  than  6  per  cent  for  persons 
whose  incomes  arc  comparatively  small.  Under  the  first  class,  for 
example,  the  director  or  manager  of  a  corporation  will  jmy  5  per  cent 
on  his  salary  or  other  compensation,  the  shareholders  of  the  corpora- 
tion will  bo  taxed  5  per  cent  on  the  dividends  they  receive,  the  tax 


118  REPORTS    OF    THE    CIVIL    GOVERNMENT 

being  paid  by  the  corporation  before  the  dividend  is  distributed,  and 
the  employees  of  the  corporation  will  pay  2i  per  cent  on  their  salaries, 
provided  the  salaries  exceed  600  pesos. 

Under  the  second,  class  a  person  engaged  in  the  sale  of  general  dry 
goods  in  a  shop  or  store  will  pay  either  400  pesos  per  annum,  if  his 
business  is  large  enough  to  warrant  the  direct  importation  of  the 
goods,  or  200  pesos  if  he  is  not  an  importer,  or  300  pesos  if  in  addition 
to  dry  goods  he  sells  jewelr}^  with  pearls  or  precious  stones.  An 
examination  of  business  actually  conducted  under  each  of  these  three 
conditions  reveals  the  fact  that  the  rates  charged  are,  roughly,  5  per 
cent  of  the  net  profits  commonly  obtained.  Again,  under  the  second 
class,  the  owner  of  a  small  hardware  shop  located  in  a  detached  house 
or  gateway,  with  but  one  door  and  without  a  storehouse,  pays  100 
pesos;  if  he  has  a  godown  or  storehouse,  120  pesos;  if  he  has  two 
doors  but  no  godown,  the  same;  if  he  has  two  doors  and  a  godown, 
150  pesos.  In  the  same  way  all  the  industries  and  shops  of  the  islands 
are  classed  into  groups  according  to  the  simplest  available  character- 
istics which  indicate  in  any  way  the  size  of  the  business  done  and  the 
possible  profits.  The  characteristics  chosen  to  determine  the  rates 
conform  to  the  traditional  and  customary  forms  for  the  organization 
of  each  of  the  different  kinds  of  business,  and  are  marked  with  suffi- 
cient clearness  to  make  the  administration  easy. 

This  tax  has  been  in  use  in  the  islands  since  July,  1879,  without 
material  change,  and  constitutes  one  of  the  conditions  to  which  busi- 
ness is  adjusted.  Under  the  Spanish  administration  the  industrial 
taxes  yielded  in  1898-97, 1,400,700  pesos,  an  amount  which,  under  our 
administration,  might  possibly  be  doubled. 

Tlte  urbana  taxes. — The  urbana  taxes  supplement  the  industrial  taxes. 
As  explained  above,  the  latter  fall  on  salaries  and  on  profits  accruing 
from  manufacturing  and  commercial  enterprises,  while  the  former  fall 
on  income  from  rents.  The  rate  is  again  5  per  cent,  and  is  assessed  on 
what  is  assumed  to  be  the  net  income  from  houses,  namely,  the  annual 
rental  value  less  25  per  cent  for  repairs  and  maintenance.  It  should 
be  observed  that  this  tax  covers  the  income  from  the  site  as  well  as 
that  from  the  building,  as  it  is  assessed  on  the  rent.  Houses  that  are 
unoccupied,  or  that  are  occupied  by  the  owners,  are  taxed  according 
to  what  they  would  rent  for,  which  is  determined  by  reference  to  other 
houses  in  the  same  locality.  The  owner  is  required  to  state  the  rent, 
and  his  statement  is  verified  by  an  examination  of  the  receipts  in 
possession  of  the  tenant. 

Exemptions. — 1.  Buildings  renting  for  less  than  26.66|  pesos  per 
annum  are  exempt.  The  tax  on  such  buildings  would  only  amount  to 
1  peso  per  annum,  an  amount  which  is  scarcely  sufiicient  to  warrant 
the  cost  of  collection.     There  is  little  objection  to  this  exemption,  as 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903,  119 

the  owners  or  occupiers  of  such  houses  are  obviously  poor,  and  are, 
moreover,  taxed  in  other  ways. 

2.  All  public  property,  including-  buildings  used  as  hospitals,  asylums, 
and  charitable  or  educational  institutions  belonging  to  private  persons, 
provided  they  are  loaned  to  the  Government  rent  free. 

3.  Buildings  owned  and  occupied  by  religious  communities,  and 
buildings  which  serve  as  residences  by  parish  priests. 

The  urbana  taxes  yielded  140,280  pesos  in  1896-97.  That  they 
would  increase  rapidly  if  maintained  under  our  administration  is  shown 
by  the  fact  that  the  leceipts  from  this  source  in  the  city  of  Manila 
alone  amounted  to  125,047  pesos  in  1899-1900. 

Stamp  taxes.- — These  are  taxes  collected  by  the  sale  of  stamped 
paper  and  adhesive  stamps,  which  the  law  requires  shall  be  used  for — • 
(1)  Legal  documents  of  all  descriptions;  (2)  for  drafts  and  bills  of 
exchange  and  receipts;  and  (3)  for  the  payment  of  fines  to  the  State. 
The  receipts  in  1896-97  amounted  to  870,000  pesos,  but  these  included 
220,000  pesos  for  telegraphic  and  100,000  pesos  for  postal  communi- 
cations, and  24,000  pesos  for  fines  remitted,  leaving  a  net  balance  of 
646,000  pesos. 

Certificates  of  registration  {cedulas  personates) . — The  cedulas  perso- 
nales,  as  used  by  the  Spaniards,  constituted  a  poll  tax  graduated  accord- 
ing- to  the  amount  of  direct  taxes  paid  by  the  citizen^  or  according  to 
his  income.  The  rates  ranged  from  nothing  for  certain  privileged 
classes  up  to  25  pesos  (later  87.50  pesos).  Special  schedules  (cedulas) 
were  provided  for  the  Chinese,  the  rates  for  which  ran  considerably 
higher.  These  taxes  were  decidedly  unpopular.  The  rates  were 
undoubtedly  too  high,  and  the  administration  and  collection  was  con- 
ducted in  a  most  oppressive  manner.  The  collection  was  enforced  in 
ways  that  were  particularly  obnoxious,  and  was  connected  with  other 
legislation  that  was  oppressive  and  unpopular.  A  tax  of  this  general 
character,  however,  seems  necessary,  whatever  the  system  of  taxation 
adopted,  as  there  is  no  other  way  of  reaching  the  great  mass  of  the 
people  who  are  not  reached  by  the  other  taxes.  But  there  seems  to 
be  no  necessity  for  a  graduated  scale. 

On  the  American  occupation  these  taxes  were  abolished.  But  it  was 
found  that  the  possession  of  such  a  document  for  the  purpose  of  identi- 
fication was  required  by  the  procedure  of  Spanish  law,  and  subse- 
quently the  sale  of  certificates  was  resumed  at  a  nominal  and  uniform 
rate  of  0.20  peso  each,  an  amount  which  was  supposed  to  be  just  suffi- 
cient to  cover  the  cost  of  issuance. 

The  cedulas  constituted  the  largest  item  in  the  list  of  revenues, 
amounting  to  7,000,000  pesos. 

Land  tax. — The  land  of  the  Philippine  Islands  has  hitherto  remained 
essentially  free  from  taxation.  The  fact  that  the  owners  of  the  land 
have  been  especiully  powerful  in  determining  the  policy  of  the  Govern- 


120  REPORTS    OF    THE    OIVIL    OOV'ERTmMENT 

niont  may  have  had  much  to  do  in  establishino-  this  condition  of  atfairs. 
The  result  has  ])een  to  relieve  the  bulk  of  tiie  propert}^  of  many  per- 
sons from  taxation,  and  by  so  nmeh  to  increase  the  burdens  of  those 
whose  property'  was  not  in  land.  Inasmuch  as  a  large  amount  of  the 
property  of  the  rich  has  consisted  in  hind,  the  exemption  of  this  form 
of  property  from  taxation  has  dii'ectly  fav'ored  the  rich  at  the  expense 
of  the  poor.  A  well-ordered  land  tax,  which  it  is  proposed  to  levy, 
will  not  onl}'  abolish  this  injustice  but  will  become  an  important  source 
of  revenue. 

IMPORTANT   RECEIPTS    OF   THE    SPANISH    GOVERNMENT   NOW   SUSPENDED. 

In  addition  to  the  items  of  revenue  discussed  above,  the  Spanish 
Government  collected  the  following  amounts: 

1.  From  the  contract  for  the  sale  of  opium,  yielding  in  1896-97, 
576,000  pesos. 

2.  Lotteries,  yielding  in  1896-97,  1,000,000  pesos. 

3.  From  coining  money,  yielding  in  1896-97,  200,000  pesos. 

It  seems  to  be  impracticable  to  resume  the  second  of  these  receipts. 
Opium,  however,  is  a  very  legitimate  and  lucrative  subject  of  taxa- 
tion. Any  repressive  effect  which  a  heavy  tax  on  opium  may  have  on 
its  consumption  is  a  clear  gain  to  the  well-being  of  the  community, 
which  will  more  than  offset  the  loss  of  revenue.  Prohibition  of  its 
use  can  hardly  be  enforced,  and,  in  view  of  the  fact  that  a  high  duty 
would  lead  to  extensive  smuggling,  some  other  form  of  a  tax  umst  be 
devised  to  make  opium  return  its  proper  contribution  to  the  revenue. 

The  Spanish  administration  found  an  advantage  in  the  internal  taxes 
here  outlined  in  that  the}^  were  easily  and  cheaply  collected.  These 
taxes  passed  as  an  inheritance  to  the  Americans  and,  with  certain  modi- 
fications, they  have  been  collected  'down  to  the  present.  The  most 
important  modification  effected  was  the  abolition  of  the  certificates  of 
registration  (cedulas  personales),  closing  a  source  of  revenue  that  had 
produced  about  7,000,000  pesos  annually.  This  left  a  revenue  of  less 
than  2,000,000  pesos,  but  much  of  the  injustice  and  annoyance  of  the 
old  sN^stem  remained.  The  taxes  bore  heavily  on  the  poor,  because 
land  was  exempt  from  taxation,  thus  throwing  the  burden  of  furnish- 
ing the  required  revenue  on  industrial  and  commercial  pursuits,  and 
because  the  lowest  rate  on  shops  was  exorbitant  when  required  of  the 
large  number  of  ver}^  small  traders.  It  is  believed  the  so-called  indus- 
trial taxes,  the  urbana  taxes,  and  the  stamp  taxes  require  either  a 
thorough  readjustment  or  complete  abolition,  and  that  new  sources  of 
revenue  ma}'  advantageously  be  found  in  a  reasonable  ad  valorem  land 
tax,  a  proper  corporate  franchise  tax,  and  a  tax  on  such  pursuits  as 
require  special  police  supervision,  which  will  produce  less  annoyance 
than  the  existing  system  and  return  an  adequate  revenue. 


OF    THE    PHILIPPINE    ISLANDS,    li»00-U)03,  121 

EDUCATION    UNDER   SPANISH   RULE. 

Under  Spanish  rule  there  was  established  in  these  islands  a  system 
of  primary  schools.  The  Spanish  regulations  provided  that  there 
should  be  one  male  and  one  female  primary  school-teacher  for  each 
5,000  inhabitants.  It  is  clearly  shown  in  the  report  of  the  first  Phil- 
ippine Commission  that  even  this  inadequate  provision  was  never  car- 
ried out.  They  say:  "Taking,  the  entire  population  at  8,000,000,  we 
find  that  there  is  but  one  teacher  to  each  4,179  inhabitants."  There 
were  no  schoolhouses,  no  modern  furniture,  and,  until  the  Americans 
came,  there  were  no  good  text-books.  The  schools  were  and  are  now 
held  in  the  residences  of  the  teachers,  or  in  buildings  hired  by  the 
municipalities  and  used  b}^  the  principals  as  dwellings.  In  some  of  the 
schools  there  were  wooden  benches  and  tables,  but  it  was  not  at  aU 
unusual  to  find  a  school  without  any  seats  for  the  pupils.  In  these 
primaiy  schools  reading,  writing,  sacred  history,  and  the  catechism 
were  taught.  Except  in  a  very  few  towns,  the  four  elementary 
arithmetical  processes  were  attempted,  and  in  a  few  towns  a  book  on 
geography  was  used  as  a  reading  book.  Girls  were  taught  embroidery 
and  needlework.  -iVom  the  beginning  the  schools  were  entirely  under 
the  supervision  of  the  religious  orders,  whp  were  disposed  to  empha- 
size secondary  and  higher  education  for  a  few  pupils  rather  than  to 
further  and  promote  the  primary  education  of  the  masses.  The  result 
of  this  polic}^  is  that  a  few  persons  have  stood  out  prominently  as  edu- 
cated Filipinos,  while  the  great  mass  of  the  people  have  either  not 
been  educated  at  all  or  furnished  only  the  rudiments  of  knowledge, 
acquiring  merely  the  mechanical  processes  of  reading  and  writing. 
The  little  school  instruction  the  average  Filipino  has  had  has  not 
tended  to  broaden  his  intelligence  or  to  give  him  power  of  independent 
thought.  One  observes  in  the  schools  a  tendency  on  the  part  of  the 
pupils  to  give  back,  like  phonographs,  what  the}'  have  heard  or  read 
or  memorized,  without  seeming  to  have  thought  for  themselves.  As  a 
rule,  they  possess  mechanical  skill,  and  they  excel  in  writing  and 
drawing.     The  Spaniards  made  very  little  use  of  this  peculiar  capacity. 

It  is  stated  on  good  authorit}^  that  when  the  Spaniards  came  here 
several  of  the  tribes  of  the  Philippine  Islands  could  read  and  write 
their  own  language.  At  the  present  time,  after  three  hundred  j'^ears 
of  Spanish  domination,  the  bulk  of  the  people  can  not  do  this.  The 
Spanish  minister  for  the  colonies,  in  a  report  made  December  5, 1870, 
points  out  that,  by  the  process  of  absorption,  matters  of  education  had 
become  concentrated  in  the  hands  of  the  religious  orders.  He  says: 
"  While  every  acknowledgment  should  be  made  of  their  services  in 
earlier  times,  their  narrow,  exclusivel}^  religious  system  of  education, 
and  their  iraperviousness  to  modern  or  external  ideas  and  influences, 
which  every  day  become  more  and  more  evident,  rendered  secular- 
ization of  instruction  necessary. " 


122  REPORTS    OF    THK    CIVIL    GOVERNMENT 

Miinj'  of  the  characteristics  of  the  Filipino  schools,  as  established  by 
the  Spaniards,  are  still  unchanged.  It  ma}'  be  said  that  in  the  typical 
provincial  school  at  first  a  kind  of  religious  primer  was  read  in  the 
native  language,  and  that  later  a  book  on  Christian  doctrine  was  taught. 
The  text-books  found  in  the  schools  were  crude,  and  provided  a  large 
amount  of  religious  instruction.  The  pupils  have  been  obliged  to  learn 
by  heart  the  exact  words  of  the  text-book.  The  teacher,  with  book  in 
hand,  hears  one  pupil  at  a  time;  the  others  at  the  same  time  are  study- 
ing aloud,  apparently  doino-  their  best  to  drown  the  voices  of  both  the 
teacher  and  of  the  pupil  reciting.  The  teacher  only  asks  the  questions 
that  are  written  down  in  the  book.  To  the  visitor  the  instruction  as 
carried  on  by  the  native  teachers  seems  tediously  mechanical,  noisy, 
and  hardly  effective  or  economical.  The  teachers  do  not  have  fixed 
daih"  programmes,  and  so  the  time  of  the  school  is  not  well  distributed. 

Generally  those  who  attend  school  are  from  7  to  10  j'^ears  of  age. 
The  teachers  are  classified  according  to  the  importance  of  the  towns 
where  they  serve.  Compensation  has  been  so  inadequate  that  the 
teachers'  calling  has  been  greatly  underestimated.  No  provision  has 
been  made  for  courses  of  instruction  for  those  engaged  in  teaching. 
There  is  apparently  no  professional  enthusiasm.  Appointments  have 
been  governed  largely  by  the  term  of  service  of  the  teacher,  regard- 
less of  the  quality  of  the  service.  It  has  been  stated  that  in  1897  there 
were  in  these  islands  2,167  public  schools.  The  ineffectiveness  of  these 
schools  will  be  seen  when  it  is  'remembered  that  a  school  under  the 
Spanish  regime  was  a  strictly  sectarian,  ungraded  school,  with  no  pre- 
scribed course  of  study  and  no  definite  standards  for  each  year,  and 
that  they  were  in  charge  of  duly  certificated  but  hardly  professionally 
trained  or  progressive  teachers,  housed  in  unsuitable  and  unsanitary 
buildings. 

EDUCATION    IN   THE    PHILIPPINE    ISLANDS     UNDER   AMERICAN     MILITARY 

GOVERNMENT. 

General  Otis  wished  military  officers  to  open  as  many  schools  as 
possible.  He  selected  and  ordered  the  text-books  now  in  use.  Several 
of  the  district  commanders  appointed  officers  to  act  as  superintendents 
of  schools.  Among  these  there  were  several  army  chaplains.  In  a 
few  instances  these  attempts  at  supervision  of  schools  have  been 
successful.  In  northern  Luzon  about  120  schools  have  been  opened 
and  fairly  well  equipped  with  stationery  and  supplies.  The  main 
difficulty  in  this  region  has  been  to  get  teachers.  For  instruction  in 
English  soldiers  have  sometimes  been  detailed,  but  in  spite  of  the 
efforts  of  the  military  officers  it  ma}'^  be  said  in  general  that  education 
throughout  the  islands  is  in  a  chaotic  condition.  The  schools  that 
have  been  established  are  poor.  There  is  no  attempt  at  gradation  of 
pupils,  and  the  work,  lacking  supervision,  is  aimless.     According  to 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  123 

reports  received  from  district  commanders,  there  are  at  present  about 
1,000  schools  open.  Prior  to  September  1,  1900,  approximately 
$41,000  was  expended  for  stationery  and  text-books  ordered  by  the 
military  governor.  A  portion  of  this  material  has  been  used  in 
Manila.     Most  of  the  text-books  ordered  were  in  Spanish. 

Outside  of  Manila  very  little  has  been  done  in  instruction  in  English. 
The  soldiers  detailed  to  teach  have  not  always  been  successful,  and  the 
commanding  officers  are  unanimous  in  urging  English  instruction  and 
in  asking  for  trained  English  teachers.  The  natives  are  reported  as 
eager  to  learn  English,  and  the  use  of  Spanish  or  the  native  dialects  is 
generally  deprecated.  Buildings  of  some  sort  are  reported  to  be  avail- 
able, but  except  in  a  few  cases  are  said  to  be  unsuitable.  Throughout 
the  islands  the  practice  still  prevails  of  allowing  the  principal  and  his 
family  to  live  in  the  school  building.  This  is  condemned  by  those  who 
have  reported  concerning  the  practice.  The  salaries  are  low,  but 
higher  than  those  stated  in  the  report  of  the  first  Philippine  Commis- 
sion. Probably  $12  Mexican  per  month  for  women  and  |20  Mexican 
per  month  for  men  would  be  a  fair  average.  In  many  cases  it  is 
reported  from  provinces  that  the  natives  can  do  nothing  for  them- 
selves except  to  provide  schoolhouses,  which  they  are  quite  willing  to 
do.  Books  and  stationery  and  English  teachers  must  be  furnished  by 
the  Government.  Until  a  land  tax  shall  have  been  levied,  financial 
aid  will  have  to  be  furnished  to  certain  pueblos  too  poor  to  pay  even 
the  small  salaries  of  the  native  teachers.  In  one  of  the  reports 
received,  Captain  Echols  says: 

To  teach  English  to  the  natives  a  knowledge  of  Spanish  or  Tagalog  is  not  necessary. 
I  at  one  time  had  charge  of  4,000  American  Indians,  with  6  American  boarding 
schools.  Not  a  child  could  speak  a  word  of  English  on  entering  the  schools,  and  in 
three  months  from  entry  these  children  could  speak  it  fairly  well,  and  this  was  accom- 
plished by  teachers  utterly  unfamiUar  with  any  one  of  the  numerous  native  dialects. 


PRESENT  EDUCATIONAL  OUTLOOK. 


By  consultation  and  correspondence  with  military  officers,  presi- 
dentes,  and  others,  an  effort  has  been  made  to  ascertain  the  exact  educa- 
tional situation  and  the  general  opinion  as  to  the  educational  policy 
to  be  pursued.  A  great  diversity  of  opinion,  due  largely  to  the  diverse 
so»ial  conditions  existing  in  the  archipelago,  has  been  discovered. 
/On  September  1,  1900,  Dr.  Fred  W.  Atkinson  assumed  the  duties 
of  general  superintendent  of  education,  and  he  has  been  acting— until 
recently  relieved  by  Dr.  David  P.  Bay6ws— at  the  same  time  as  super- 
intendent of  the  schools  in  Manila.  ^ 

Undoubtedly  a  well-directed  system  of  education  will  prove  one  of 
the  most  forceful  agencies  for  elevating  the  Filipinos,  materially, 
socially,  and  morally,  and  preparing  them  for  a  large  participation 
in  the  affairs  of  government.     Effort  is  being  made  to  provide  a 


124  REPORTS    OF    THE    CIVIL    OOVERNMENT 

system  of  public  iiistiuetion  adapted  to  the  conditions  existing  in  the 
different  islands.  According  to  the  American  standard,  the  ideal 
school  is  a  nonsectarian,  graded  school,  with  a  prcsc^ribed  course  of 
study  and  definite  standards  for  each  year,  under  charge  of  trained 
teachers  and  housed  in  suitable  buildings.  Some  modification  of  this 
ideal  must  be  allowed,  however,  to  bring  the  means  of  instruction 
within  the  reach  of  the  entire  child  population  of  these  islands.  In 
some  of  the  smaller  towns  schools  will  have  to  be  organized  under 
conditions  which  will  preclude  an  immediate  compliance  with  the 
standard  to  be  set  for  the  larger  towns,  and  in  the  sparsely  settled 
portions  of  the  country  it  may  be  necessary  for  teachers  to  go  from 
barrio  to  barrio,  as  is  now  done  in  some  parts  of  Norway  and  Sweden. 
Common  schools  must  be  established  everywhere,  and  as  a  minimum 
standard  ever}^  child  must  be  taught  arithmetic  and  to  read  and  write 
the  English  language. 

In  addressing  the  Commission  on  November  21, 1900,  concerning  the 
bill  providing  for  local  civil  government  in  the  province  of  Benguet, 
yMr.  Otto  Scherer,  who  has  lived  for  many  years  among  the  Igorrotes, 
spoke  as  follows  of  their  attitude  toward  education: 

I  beg  to  call  the  attention  of  the  Commission  to  the  great  urgency  felt  even  by  the 
Igorrotes  of  Benguet  that  schools  be  established,  and  not  only  town  schools  in  the 
old  fashion,  but  an  English  school  in  the  future  capital  of  the  province,  which  will 
be  Baguio.  For  these  schools  I  ask  you  especially  for  the  financial  assistance  of  the 
insular  government,  because  without  such  aid  schools  would  be  organized  which  it 
would  be  better  not  to  organize  at  all.  I  have  sounded  the  opinion  of  several  Igor- 
rotes in  Benguet  as  to  schools,  and  I  am  glad  to  be  able  to  say  that  I  find  them  con- 
vinced of  the  great  necessity  of  rising  from  their  present  state  of  illiteracy,  as  it  is 
recognized  by  them  as  the  origin  of  many  of  their  troubles.  They  are  quite  prepared 
to  immediately  build  schools,  but  the  erection  of  the  buildings  would  be  all  they 
could  do  by  themselves,  and  this  only  on  condition  that  the  insular  government 
would  allow  them  to  cut  timber  in  the  public  woods  free  of  charge,  and  that  security 
be  given  to  them  that  the  buildings  they  erect  for  schools  be  not  given  any  other 
destination  after  completion. 

SCHOOL   ORGANIZATION. 

The  peculiar  conditions  existing  here  demand  a  centralized  control 
of  the  public-school  system.  There  should  be  careful  State  super- 
vision of  all  public  schools.  Insular  or  provincial  superintendents 
will  be  needed  to  assist  the  general  superintendent.  Town  and  city 
superintendents  will  hardly  be  possible  for  some  time.  District  super- 
intendents, corresponding  to  our  county  system,  will  be  established  at 
first.  In  the  centralized  system  of  school  organization,  which  is  best 
fitted  for  this  archipelago,  the  general  superintendent  will  find  the 
district  superintendency  a  most  efficient  channel  in  reaching  the  people 
of  these  islands,  and  in  furnishing  an  opportunity  for  learning  the 
needs  of  the  various  parts  of  the  archipelago.  The  duties  of  the 
district  superintendents  will  be  to  see  that  schools  are  established  and 


OB'    THE    PHILIPPINE    ISLANDS,    1900-1903.  125 

proper  buildings  constructed,  to  regulate  courses  of  study,  to  inspect 
schools  regularly,  to  pass  upon  the  qualifications  of  teachers,  and  to 
collect  and  transmit  school  statistics  to  the  central  school  authorities. 
It  is  essential  to  the  proper  success  of  the  educational  system  here 
established  that  these  superintendents  should  be  men  of  integrity,  busi- 
ness ability,  and  professional  skill.  An  ejffort  will  be  made  to  insure 
the  success  of  the  schools  throughout  the  archipelago  by  interesting 
local  authorities  in  their  development  and  maintenance.  It  will  be 
found  advisable  to  have  a  visiting  and  advisory  committee  or  board  in 
every  town,  this  board  to  be  charged  with  the  duty  of  the  general 
supervision  of  the  schools  and  the  obligation  of  reporting  monthly  to 
the  department  superintendent  their  condition  and  the  attendance  of 
the  pupils.  It  will  also  advise  the  central  authority  as  to  the  location 
of  schools.  At  first  local  control  may  be  impossible  in  some  places, 
but  the  affairs  of  the  school  management  will  be  so  ordered  as  to 
stimulate  local  efl'ort.- 

^LANGUAGE   BASIS   OF   INSTRUCTION. 

It  is  not  practicable  to  make  the  native  languages  the  basis  of 
instruction,  for  this  would  necessitate  the  translation,  not  merely  of 
school  primers  but  of  many  texts  of  every  sort,  into  the  principal 
native  dialects.  Most  of  the  commanding  officers  in  the  provinces 
who  have  reported  state  that  "no  instruction  in  native  dialects  is 
desirable,"  and  also  that  there  is  no  need  of  perpetuating  the  Spanish 
language,  for  it  is  understood  by  only  a  small  part  of  the  native  popu- 
lation.— English  is  desired  by  the  natives,  and  undoubtedly  it  should 
be  the  language  basis  of  public-school  work,  but  it  should  be  intro- 
duced gradually.  Teachers  sent  out  into  the  provinces  will  be  encour- 
aged to  learn  the  dialects  of  the  people  with  whom  they  are  associated. 
The  text-books  which  are  now  in  stock,  purchased  by  the  military 
authorities,  have  been  selected  largely  with  the  idea  that  what  is 
suitable  for  Manila  is  suitable  for  other  portions  of  the  archipelago. 
Spanish  editions  of  Wentworth's  Arithmetic,  Barnes's  History  of  the 
United  States,  and  Frye's  Geography  have  been  ordered  in  large 
quantities.  These  text-books  in  Spanish,  which  were  ordered  by  the 
military  department  of  education  and  are  now  being  distributed  in 
the  schools,  are  unsuitable,  as  they  tend  to  perpetuate  the  Spanish 
language  and  to  delay  the  introduction  of  English  as  a  basis  of 
instruction. 

-  The  majority  of  the  inhabitants  of  these  islands  do  not  understand 
Spanish,  and  it  would  be  a  waste  of  opportunit}^  to  teach  them  this 
language  with  a  view  to  making  it  the  basis  of  their  future  instruc- 
tion. The  supply  of  Spanish  text-books  is  rapidly  being  exhausted, 
and  very  soon  Englisn  arithmetics,  histories,  and  geographies  will  be 
23181—04 9 


126  REPORTS    OF    TFIK    CIVIL    GOVERNMENT 

ordered  and  used.  It  nia}'  be  that  in  sonic  cases  Spanish  will  have  to  be 
employed  at  tirst,  but  there  seems  no  t^ood  reason  why  it  should  con- 
tinue to  be  the  basis  of  instruction.  While  the  Spanish  were  the  domi- 
nant element  in  the  population  they  made  a  special  effort  in  many 
places  to  prevent  the  common  people  from  learning  their  language, 
and  the  eagerness  which  is  now  everywhere  manifest  to  learn  English 
shows  a  popular  appreciation  of  the  efforts  now  being  put  forth  to 
enable  them  to  become  familiar  with  what  is  to  be  the  predominant 
language  of  the  government. 

COMPULSORY   EDUCATION. 

Primary  instruction  must  ultimately  be  compulsor}'^  for  all  children 
between  the  ages  of  6  and  12  years.  Efforts  will  be  made  to  secure  a 
compliance  with  this  plan,  but  it  will  be  difficult  to  carry  it  out  at 
first,  particularly  in  smaller  towns  and  districts  with  a  sparse 
population. 

NIGHT   SCHOOLS. 

On  September  3,  1900,  upon  the  initiative  of  the  Commission,  a 
night  school  for  teaching  English  to  adults  was  opened  in  Sampaloc 
school  for  three  nights  in  the  week  from  7.30  to  9.  This  school  has 
proven  so  successful  that  it  has  led  to  the  establishment  of  two  others, 
one  in  the  building  of  the  Girls'  Municipal  School  (within  the  walled 
city),  and,  more  recently,  one  in  Binondo.  The  total  enrollment  of 
these  three  schools  is  now  over  1,900,  and  25  teachers  are  employed  in 
giving  instruction.  So  far  nothing  has  been  attempted  but  the  teach- 
ing of  English,  but  the  time  seems  to  be  approaching  when  other  sub- 
jects can  be  introduced,  such  as  arithmetic,  commercial  accounts, 
business  forms  and  methods,  geography,  and  even  typewriting  and 
stenography;  and  an  effort  made  to  fit  students  in  a  practical  way  for 
the  examinations  for  clerkships  under  the  civil-service  board,  and  for 
actual  business  positions.  A  supplementarj^  reading  book  on  American 
history  has  been  ordered  for  immediate  use  in  the  night  schools.  A 
series  of  lectures,  illustrated  with  stereopticon,  on  countries  and  cities 
of  the  world  is  also  projected.  The  effort  is  being  made  to  perfect  a 
system  of  registration,  to  compel  regular  attendance,  and  by  careful 
grading  and  personal  attention  meet  the  actual  needs  of  each  pupil  and 
make  this  exceedingly  promising  work  permanent  in  its  organization 
and  its  hold  upon  the  attendants. 

There  are  classes  for  women  at  the  Sampaloc  and  Binondo  night 
schools,  taught  by  women,  but  meeting  the  same  evenings  of  the  week 
as  the  classes  for  men.  At  the  Victoria  night  school,  as  it  has  been 
named,  it  has  been  found  advisable  to  conduct  the  classes  for  women 
on  alternate  nights  of  the  week  as  a  separate  institution.  This  has 
been  done  with  a  woman  principal  and  two  assistants  in  charge  of  the 


OP    THE    PHILIPPINE    ISLANDS,    1900-1903.  127 

instruction.  Some  personal  statistics  relating  to  the  enrollment  of 
pupils  at  the  Sampaloc  night  school  may  be  suggestive  of  the  degree 
to  which  these  schools  are  capable  of  reaching  various  classes  of  Fili- 
pinos representing  a  generation  not  reached  by  ordinary  educational 
efforts.  The  enpollment  of  pupils  has  been  found  to  include  clerks, 
merchants,  newspaper  reporters,  bookbinders,  salesmen,  teachers, 
police  officers,  firemen,  secretaries,  mechanics,  cigar  makers,  janitors, 
physicians,  laborers,  barbers,  and  a  variety  of  other  professions  and 
occupations.  The  age  of  the  attendants  varies  from  12  to  60  years, 
but  the  average  is  not  far  from  23. 

SUPPORT  OF   SCHOOLS. 

The  main  support  of  primary  schools  will,  when  the  government  is 
thoroughly  organized,  fall  upon  the  municipalities.  In  the  beginning 
it  will  not  be  possible  for  certain  pueblos  to  furnish  this  support,  and 
appropriations  will  have  to  be  made  from  the  insular  treasury.  For 
some  time  text-books,  stationery,  and  teachers  of  English  will  have 
to  be  furnished  to  all  municipalities.  In  case  of  financial  aid,  it  will 
be  rendered  in  proportion  to  the  number  of  pupils  and  their  average 
attendance.  The  ultimate  aim,  however,  will  be  to  order  the  system 
so  that  each  pueblo  will  support  its  own  school. 

NORMAL   SCHOOLS. 

In  Manila,  at  the  beginning  of  the  next  school  year,  a  normal  school, 
founded  on  the  American  plan,  will  be  opened.  Connected  with  this 
institution  there  will  be  a  primary  school  serving  as  a  practice  school 
for  the  more  advanced  normal  students.  In  its  material  equipment 
and  in  its  methods  it  will  furnish  a  model.  It  will  be  possible  for 
students  to  enter  this  normal  school  from  the  provinces  as  well  as  from 
Manila.  It  may  be  necessary  to  arrange  for  a  preparatory  department 
where  instruction  in  English  may  be  given.  Later,  other  normal 
schools  in  three  or  four  other  centers  of  population  will  be  needed. 

NAUTICAL   SCHOOL. 

There  exists  at  present  in  Manila  a  flourishing  nautical  school.  This 
school  was  opened  on  December  15,  1899.  The  course  of  instruction 
extends  over  three  years.  For  the  first  year  it  includes  arithmetic, 
algebra,  English,  geography,  and  drawing;  for  the  second  year  it 
includes  geometry,  plane  trigonometry,  geography,  mechanics,  Eng- 
lish, and  drawing.  During  the  third  year  the  pupils  are  instructed  in 
spherical  trigonometry,  nautical  astronomy,  navigation,  theoretical 
seamanship,  and  hydrographical  drawing.  Lieut.  Commander  V.  L. 
Cottman,  U.  S.  N.,  was  appointed  first  superintendent.  He  was 
assisted  by  3  instructors.    Lieut.  George  F.  Cooper  relieved  Lieutenant- 


128  REPORTS    OK    TUK    CIVIL    (JOVEKNMENT 

Comnnuulor  Cottman  on  December  25, 1899.  Twenty-two  pupils  were 
present  at  the  opening  of  the  school.  Some  of  them  had  been  pupils  in 
the  Spanish  nautical  school.  In  the  examination  held  to  determine  their 
classiticatiou  3  of  them  were  qualified  to  enter  upon  the  work  of  the 
second  year;  the  other  19  were  assigned  to  the  work  of  the  first  j^ear. 
During  the  vacation,  covering  the  months  of  April  and  May,  5  of  the 
pupils  were  taken  into  the  service  of  the  Compaiiia  Maritima,  and 
thus  acquired  valuable  experience  in  their  proposed  profession.  At 
the  beginning  of  the  new  term,  in  June,  the  number  of  pupils  had 
increased  to  such  an  extent  as  to  require  the  service  of  7  instructors 
instead  of  the  3  previously  employed.  The  methods  of  instruction, 
the  system  of  marks  and  records,  and  the  discipline  of  the  school  are 
based  upon  those  of  the  United  States  Naval  Academy.  It  was  diffi- 
cult in  the  beginning  to  maintain  a  very  high  standard  of  work  by 
pupils  of  whom  hitherto  little  discipline  or  effort  had  been  required. 
At  first  instruction  was  given  in  Spanish,  but  owing  to  the  inferior 
quality  of  Spanish  text-books  it  has  become  desirable  to  substitute  as 
early  as  possible  the  English  for  the  Spanish  language.  The  increas- 
ing need  of  skillful  seamen  to  conduct  the  growing  interisland  trade 
makes  it  important  that  this  school  should  not  only  be  maintained, 
but  enlarged. 

MILITARY   SCHOOL. 

In  view  of  the  fact  that  it  will  be  necessary  in  the  future  to  employ 
a  considerable  number  of  Filipinos  in  the  military  service  in  these 
islands,  it  is  desirable  that  there  should  be  established  here  a  military 
school. 

AGRICULTURAL    SCHOOL. 

That  the  Filipinos  may  be  in  a  position  to  develop  the  vast  agricul- 
tural resources  of  these  islands,  it  is  desirable  to  establish  here  schools 
of  agriculture.  It  will  be  necessary  to  send  to  the  agricultural  col- 
leges of  America  for  instructors.  These  must  be  men  who  will  study 
the  agricultural  conditions  here  existing,  and  teach  practically  the 
best  means  of  cultivating  and  improving  the  products  peculiar  to  this 
archipelago. 

TRADE    SCHOOLS. 

Besides  the  schools  of  agriculture,  there  will  be  needed  trade  schools 
in  which  blacksmithing,  tinsmithing,  carpentering,  cabinetmaking, 
painting,  and  other  trades  will  be  taught.  In  these  establishments  it 
will  be  desirable  to  have  practical  work  done,  and  at  the  same  time 
furnish  opportunity  to  students  to  support  themselves  by  their  work. 
Small  contracts  may  be  taken  from  the  outside  and  done  under  com- 
petent supervision.  Americans  will  be  needed  as  heads  of  these 
schools. 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  129 

DESTITUTE   AND   CRIMINAL   CHILDREN. 

Eventually  orphanages,  reform  schools,  schools  for  the  deaf  and 
dumb  and  blind,  supported  by  public  funds,  will  have  to  be  established. 
The  following  points  in  recapitulation  may  be  emphasized: 

1.  The  system  of  instruction  in  the  Philippine  Islands  must  be,  at 
least  in  the  beginning,  largely  centralized.  There  will  be  a  general 
superintendent  of  education,  as  man}^  assistant  superintendents  as  there 
are  departments. 

2.  There  will  be  needed  a  system  of  local  advisory  boards. 

3.  The  text-books,  charts,  maps,  globes,  stationery,  and  English 
teachers  will  have  to  be  furnished  to  municipalities  b}?^  the  insular 
government. 

4.  As  far  a3  possible  school  buildings  will  have  to  be  constructed 
and  native  teachers  supported  by  local  taxation. 

5.  All  schools  supported  by  public  funds  must  be  free  and  non- 
sectarian. 

6.  Emphasis  must  be  placed  upon  the  elementary  education  of  the 
masses. 

7.  The  education  furnished  must  be  of  a  practical,  utilitarian  char 
acter.     What  is  attempted  in  the  way  of  instruction  must  be  done 
thoroughly,  and  the  aim  must  be  in  particular  to  see  that  children 
acquire  in  school  skill  in  using  their  hands  and  their  heads  in  a  way  to 
earn  a  livelihood. 

8.  Normal,  agricultural,  commercial,  and  trade  schools  will  early 
receive  attention. 

9.  Native  teachers  must  be  paid  more  than  under  Spanish  rule,  and 
in  every  way  possible  teaching  be  made  a  desirable  calling.  Native 
teachers  in  office  will  be  taught  a  broader  and  more  thorough  concep- 
tion of  education.  To  this  end  courses  of  instruction  for  teachers  will 
be  provided.     Teachers  will  be  examined,  certified,  and  classified. 

10.  The  present  educational  system  will  be  modernized  and  secular- 
ized and  adapted  to  the  needs  of  a  people  who  have  hitherto  been 
deprived  of  the  opportunities  of  a  rational  education. 

Wm.  H.  Taft. 
Dean  C.  Worcester. 
Luke  E.  Wright. 
Henry  C.  Ide. 
Bernard  Moses. 


REPORT  OF  THE  UNITED  STATES 
PHILIPPINE  COMMISSION. 


The  Secretary  or  War, 

Washington^  D.  C. 

Sir:  We  hereby  submit  our  second  report  on  affairs  in  the  Philippine 
Islands.     Our  last  report  was  dated  November  30,  1900. 

During-  December,  1900,  and  January  and  Februar}^,  1901,  there 
was  great  military  activity  in  all  parts  of  the  islands.  In  December 
General  MacArthur  issued  a  proclamation  warning  all  who  were  aid- 
ing and  abetting  the  insurrection  by  furnishing  funds  and  other  assist- 
ance that  they  would  be  severe!}"  dealt  with.  Many  persons  suspected 
of  complicity  in  offenses  of  this  description  were  imprisoned,  and  it 
ceased  to  be  regarded  as  an  innocent  amusement  to  enjoy  life  within 
American  garrisons  and  assist  the  guerrillas  in  the  woods  and  moun- 
tains. In  November  the  Federal  party  had  been  organized.  An 
account  of  the  feeling  of  the  Filipino  people,  which  made  the  Federal 
party  possible,  will  be  found  in  an  appended  report  of  Dr.  Pardo  de 
Tavera,  some  time  its  president,  and  Senores  Benito  Legarda  and  Jose 
Luzuriaga,  members  of  the  party,  all  of  whom  are  now  members  of 
the  commission  (Appendix  A).  It  was  organized  to  secure  peace  for 
this  country  under  the  sovereignty  of  the  United  States.  The  party 
spread  like  wildfire  through  the  archipelago,  and  there  are  now  few 
towns  in  any  of  the  provinces  which  have  not  their  Federal  committees. 
Its  members  were  most  active  and  effective  in  inducing  insurgent 
leaders  to  surrender.  In  January  the  commission  adopted  the  munici- 
pal code  and  the  provincial  law,  and  in  February  began  the  task  of 
organizing  those  provinces  which  were  deemed  prepared  for  civil 
government.  This  work  continued  through  February,  March,  April, 
and  May,  and  indeed  was  not  completed  in  the  north  until  August. 

The  collapse  of  the  insurrection  came  in  May,  after  many  important 
surrenders  and  captures,  including  that  of  Agulnaldo.  Cailles,  in 
Laguna,  surrendered  in  June,  and  Belarmino,  in  Albay,  on  July  4. 

There  are  four  important  provinces  in  which  the  insurrection  still 
continues,  Batangas,  Samar,  Cebu,  and  Bohol.     Parts  of  Laguna  and 

131 


132  REPORTS    OF    THE    CIVTL    GOVERNMENT 

Taj^abas  adjoining  Batangas  in  the  mountain  region  arc  affected  by  the 
disturbances  in  Ratangas.  In  Mindoro  also,  a  thinly'  settled  and  almost 
luiexplored  island,  there  are  insurrectos.  Our  troops  did  not  occupy 
it  until  August  of  this  year,  but  they  now  have  driven  in  to  the 
unhealthy  ajid  trackless  forests  of  the  interior  the  200  insurrectos  who 
had  made  the  island  a  refuge,  and  have  captured  their  leader,  a  white 
man  named  Howard.  Malvar,  in  Batangas,  though  chased  from  one 
hiding  place  to  another,  has  thus  far  eluded  capture.  In  Samar,  Gen- 
eral Hughes  has  conducted  a  most  difficult  campaign  against  Lukban. 
The  island  is  mountainous  and  rough,  without  roads,  and  General 
Hughes  has  been  obliged  to  build  trails  to  establish  necessary  communi- 
cations. He  has  driven  the  insurgent  leader  out  of  his  fastnesses  and 
scattered  his  forces.  The  result  has  been  seen  in  a  return  of  the  peo- 
ple to  all  the  towns  along  the  coast,  now  that  the  towns  are  garrisoned 
and  the  enemy  of  the  interior  has  been  made  less  powerful  for  harm. 
A  great  disaster,  however,  has  recently  occurred  in  the  last  da3^s  of 
September  in  one  of  the  far  southern  towns  of  the  island  called  Balan- 
giga.  Company  C,  of  the  Ninth  Infantry,  66  men  and  3  officers,  were 
surprised  at  breakfast  and  cut  off  from  their  guns  by  several  hundred 
bolomen  who  had  come  into  town  as  unarmed  natives  under  pretense 
of  attending  a  church  fiesta.  Forty-five  men  and  officers  were  killed 
after  a  desperate  resistance.  Twenty-four  only  were  able  to  escape. 
Outside  of  the  five  provinces  named  there  is  peace  in  the  remainder 
of  the  archipelago.  This  remainder  includes  30  organized  provinces 
and  all  the  districts  of  Mindanao,  the  Jolo  Archipelago,  Paragua, 
Lepanto,  Bontoc  and  Nueva  Vizcaya,  Principe  and  Infanta.  All  insur- 
rectos have  surrendered,  and  in  most  of  the  provinces,  except  among 
the  Lake  Moros,  it  is  entirely  safe  during  the  day  for  travelers  unat- 
tended to  go  from  one  town  to  another.  In  other  provinces  recent 
war  conditions  and  suffering  and  hardship  from  cattle  pest  and  locusts 
have  developed  ladronism.  The  people  are  friendly  to  the  civil  gov- 
ernment and  manifest  no  desire  whatever  for  a  continuance  of  the  war, 
but  onlj^  a  desire  for  peace  and  protection.  The  recent  terrible  massa- 
cre in  Samar  has  been  made  the  occasion  for  uneasiness  on  the  part  of 
some,  as  indicating  a  treacherous  hostility  on  the  part  of  all  the  Fili- 
pino people  against  Americans  and  the  army.  The  truth  is  that  noth- 
ing could  be  more  unfair  than  to  attribute  to  the  Filipino  people  at 
large  the  motives  of  those  who  carried  out  the  well-laid  plot  at  Balan- 
giga.  That  was  in  a  remote  and  always  turbulent  island,  still  devas- 
tated by  war,  and  was  devised  by  persons  with  all  the  war  passions 
who  have  experienced  none  of  the  benefits  of  either  peace  or  civil  gov- 
ernment. Surely  a  sense  of  proportion  is  wanting  in  those  who  would 
allow  an  incident  of  this  kind,  deplorable  as  it  is,  to  overcome  the  evi- 
dence which  accumulates  on  every  hand  of  the  desire  of  the  people  at 
large  for  peace  and  protection  by  the  civil  government.    Had  the  peo- 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  133 

pie  of  the  provinces  in  which  civil  government  has  been  organized 
desired  to  gratify  a  feeling  of  treacherous  hostilit}'  toward  the  Ameri- 
can troops  by  such  attacks,  many  posts  all  over  the  islands  would  have 
afforded  opportunities  long  before  this.  It  will  be  a  sad  injustice  if 
the  Samar  disaster  shall  induce  on  one  side  a  rigor  in  the  treatment  of 
all  Filipinos  and  on  their  part  a  consequent  revulsion  in  those  feelings 
of  friendship  toward  the  Americans  which  have  been  growing  stronger 
each  day  with  the  spread  and  development  of  civil  government. 

THE    W^ORK   OF   THE    COMMISSION. 

The  work  of  the  commission  since  it  began  to  legislate  in  September, 
1900,  has  been  constant.  The  body  has  not  been  able  to  accomplish 
oue-half  of  what  ought  to  be  done  at  once,  and  it  has  been  possible 
only  to  make  a  selection  and  postpone  those  matters  in  which  delay 
would  cause  least  embarrassment.  The  commission  has  had  in  addi- 
tion to  its  legislative  work  much  executive  labor  which  could  not  be 
put  off,  the  chief  of  which  has  been  the  making  of  important  appoint- 
ments, including  the  members  of  the  iudiciarv.  Copies  of  the  laws 
of  the  commission  for  one  year  accompany  this  report.  (Appendix  B.) 
Specific  reference  to  the  more  important  laws  will  be  made  later. 
Attention  need  now  be  called  only  to  the  fact  that  we  have  passed 
since  our  last  report,  in  addition  to  numerous  appropriation  bills,  a 
municipal  code,  a  provincial  law,  a  school  law,  a  law  prescribing  an 
accounting  system,  acts  organizing  the  various  bureaus  of  the  central 
government,  acts  organizing  the  courts,  an  act  to  incorporate  the  city 
of  Manila,  a  code  of  civil  procedure  for  the  islands,  and  a  new  tariff 
act.  Printing  facilities  have  been  so  poor  as  greatly  to  delay  the  work 
of  legislation.  Four  months  of  our  time  have  been  taken  up  in  the 
establishment  of  provincial  governments  throughout  the  archipelago. 

THE    ORGANIZATION   OF   PROVINCIAL   GOVERNMENTS. 

The  general  provincial  law  provides  for  a  provincial  government  of 
five  ofiicers — the  governor,  the  treasurer,  the  supervisor,  the  secretary, 
and  the  fiscal,  or  prosecuting  attorney.  The  governing  board  is  called 
the  provincial  board,  and  includes  as  members  the  governor,  the  treas- 
urer, and  the  supervisor.  The  prosecuting  attorney  is  the  legal  adviser 
of  the  board  and  the  secretary  of  the  province  is  its  secretary.  The 
first  function  of  the  provincial  government  is  to  collect,  through  the 
provincial  treasurer,  all  the  taxes,  with  few  exceptions,  belonging  to 
the  towns  or  the  province.  Its  second  and  most  important  function 
is  the  construction  of  highways  and  bridges  and  public  buildings.  Its 
third  function  is  the  supervision,  through  the  governor  and  the  pro- 
vincial treasurer,  of  the  numicipal  ofiicers  in  the  discharge  of  their 
duties.  Within  certain  limitations,  the  provincial  board  fixes  the  rate 
of  levy  for  provincial  taxation. 

The  governor  has  the  power  to  suspend  any  municipal  officer  found 


184 


REPORTS    OF    THE    CIVIL    OOVERNMENT 


failing  in  his  duty,  Jind  is  obliged  to  visit  the  toAvns  of  the  province 
twice  in  a  year  and  hear  complaints  against  the  municipal  officers.  The 
provincial  treasurer  collects  all  the  taxes,  turns  over  those  due  to  the 
town  to  the  municipal  treasurer,  and  examines  the  accounts  of  that 
officer.  The  supervisor  must  be  a  civil  engineer,  and  carries  on  the 
work  required  to  be  done  by  the  provincial  board.  The  fiscal,  or 
prosecuting  attorney,  is  the  legal  adviser  of  the  provincial  board  and 
of  ever}'  municipality  in  the  province.  He  also  conducts  all  criminal 
prosecutions  in  courts  of  first  instance  for  the  province.  Under  the 
act  the  offices  are  all  to  be  filled  at  first  by  appointment  of  the  commis- 
sion. The  governor  holds  his  office  until  February,  1902,  when  his 
successor  is  to  be  elected  in  a  mass  convention  of  the  municipal  coun- 
cilors of  the  towns  of  the  province.  The  secretary,  treasurer,  and 
supervisor  after  February  next  are  brought  under  the  civil-service 
act,  and  all  vacancies  thereafter  arising  are  to  be  filled  in  accordance 
with  the  terms  of  that  act.  The  fiscal  is  appointed  for  an  indeterminate 
period,  and  is  not  subject  to  the  civil-service  law.  The  general  pro- 
vincial act  did  not,  by  its  terms,  apply  to  any  particular  province,  but 
left  the  application  to  particular  provinces  to  be  made  by  special  acts. 
The  commission  reached  the  conclusion  that  it  would  aid  in  the 
pacification  of  the  country;  would  make  the  members  of  that  body 
very  much  better  acquainted  with  the  country,  with  the  people,  and 
with  the  local  conditions,  and  would  help  to  educate  the  people  in 
American  methods,  if  the  commission  went  to  the  capital  of  each  prov- 
ince and  there  passed  the  special  act  necessary  to  create  the  provincial 
government  and  made  the  appointments  at  that  time.  Accordingly, 
the  commission  visited  thirty-three  provinces.  The  first  province  was 
Pampanga,  which  it  visited  on  the  13th  of  February,  1901,  and  then 
followed  the  visits  to  the  other  provinces  in  accordance  with  the  fol- 
lowing list: 


Province. 

Date  of  visit. 

Province. 

Date  of  visit. 

February  16-lG. 

February  18. 

February  26-27. 

March  1-2. 

March  12-13. 

March  1.5,  May  1. 

March  IG. 

March  18. 

(March  20-24. 
lApril  10-11. 

March  21-22. 

April  6. 

April  7. 

April  9. 

April  13. 

April  14-15. 

April  17-18. 

Bohol 

April  19-20. 

Tarlac           

Leyte 

April  21-22. 

Bulacan ' 

Albay 

April  25-26. 

April  27-28. 

April  30.              * 

Batangas 

May  2, 

Romblon 

Rizal  

June  5. 

June  6. 

Nueva  Ecija 

June  8. 

La  Union 

August  16. 

Occidental  Negros 

Surigao  

Ilocos  Norte 

Oriental  Negros 

Zambales 

Cebu 

OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  135 

The  special  acts  for  Occidental  and  Oriental  Negros,  Surigao,  Misa- 
mis,  Cavite,  Rizal,  and  Nueva  Ecija  were  not  passed  at  the  times  of 
the  visits  of  the  commission,  but  were  for  different  reasons  postponed 
for  some  days  after  leaving  the  provinces. 

The  southern  trip  of  the  commission  also  included  visits  to  Jolo  on 
March  27  and  28;  Isabela  de  Basilan,  March  29;  Zamboanga,  March 
30  and  31;  Cotabato,  April  2;  Davao,  April  3  and  4;  Dapitan,  April 
8,  and  Samar,  April  23.  The  procedure  of  the  commission  when  it 
reached  the  capital  of  the  province  was,  first,  to  receive  the  command- 
ing officer  and  confer  with  him  concerning  the  conditions,  the  character 
of  the  prominent  persons  suggested  as  candidates  for  office,  and  other 
circumstances  which  might  enable  the  commission  to  carry  on  the  dis- 
cussion with  the  people  intelligently;  and,  second,  to  meet  in  conven- 
tion the  presidentes,  the  municipal  councilors,  and  the  principales,  or 
principal  men  of  each  town,  all  of  whom  had  been  summoned  to  meet 
the  commission.  In  most  cases  the  attendance  was  very  satisfactory, 
and  all  the  important  towns  were  represented.  The  president  of  the 
commission  stated  the  purpose  of  the  visit,  explaining  the  provisions 
of  the  provincial  law,  and  then  inviting  a  discussion  upon  the  points 
to  be  fixed  in  the  special  act,  to  wit,  the  salaries  of  officials,  the  per 
diem  for  traveling  expenses,  the  boundaries  of  the  province,  the  capital 
of  the  province,  and  other  local  matters.  A  discussion  followed,  which 
generally  consisted  of  a  colloquy  between  the  speaker  and  the  members 
of  the  commission  in  a  search  for  facts.  A  great  deal  of  valuable 
information  was  elicited,  and  the  commission  became  possessed  of  a 
local  knowledge  of  these  islands  difficult  to  obtain  in  any  other  way. 
The  minutes  of  these  meetings  and  other  interviews  held  by  the  com- 
mission in  Mindanao  accompany  this  report  as  Appendix  C. 

The  success  of  the  meetings  was  very  largely  made  possible  by  the 
wonderful  genius  for  interpretation  from  English  into  Spanish  and 
from  Spanish  into  English  possessed  by  Mr.  Arthur  W.  Fergusson, 
then  the  secretary  of  the  commission  and  now  the  executive  secretary 
of  the  islands.  He  has  the  dramatic  instinct  and  that  peculiar  knowl- 
edge of  the  two  languages  which  enables  him,  without  the  slightest 
hesitation,  to  make  a  smooth,  graphic,  and  effective  translation  of  each 
speech  made  by  native  or  American.  His  work,  which  was  incessant 
night  and  day,  was  a  remarkable  exhibition  of  mental  and  physical 
vigor.     The  meeting  usuall}^  occupied  three  half-day  sessions. 

At  the  last  session  the  act  framed  in  accordance  with  the  discussion 
was  passed  and  the  appointees  were  announced,  and,  if  they  were  pres- 
ent, were  immediately  sworn  in.  There  were  in  the  party  on  the 
southern  trip  the  wives  of  the  commissioners  and  the  wives  of  some 
of  the  secretaries,  as  well  as  a  number  of  prominent  Filipinos  from 
Manila,  members  of  the  Federal  party,  who  assisted  the  labors  of  the 
commission  in  every  way.  The  presence  of  the  ladies  seemed  to  be 
especially  gratifying  to  the  people  whom  we  met,  as  evidence  of  our 


130  REPORTS    OF    TIIK    OIVIL    (K)VERNMENT 

conlidonoo  in  the  sincerity  of  their  friendly  reception.  Speeches  were 
usually  made  at  the  close  of  the  meeting  by  some  of  the  Filipino  gen- 
tlemen who  were  in  the  party. 

The  reception  which  was  accorded  the  commission  by  the  educated 
people  and  the  common  people  alike  was  most  gratifying.  It  is  easy 
to  discredit  the  sincerity  of  such  manifestations,  and  it  nmst  be  admitted 
that  an  oriental  people  like  this  are  much  more  demonstrative,  and 
love  to  show  their  feelings  in  fiestas,  music,  flowers,  and  arches  more 
than  an  occidental  people,  but  the  evidences  of  the  sincerest  interest  in 
our  work  and  of  a  really  cordial  welcome  were  too  many  to  be  doubted. 
The  interest  which  was  taken  in  the  discussions  varied,  of  course,  in 
different  provinces,  but  in  all  the  attention  given  to  the  proceedings 
was  intense,  and  the  gratitude  of  the  people  for  the  establishment  of 
civil  government  was  certain  and  clear.  Under  the  directions  of  the 
commanding  general  every  attention  was  shown  to  the  commission  by 
the  military  officers  in  command  of  the  posts  and  every  assistance  given 
to  it. 

On  the  recommendation  of  General  MacArthur  four  provinces  were 
organized  with  the  knowledge  that  insurrection  was  still  rife  in  them, 
but  with  the  hope  that  the  organization  of  civil  government  might 
bring  about  the  surrenders  which  were  said  to  be  then  in  contempla- 
tion— to  wit,  Cebu,  Bohol,  Batangas,  and  Albay.  In  Albay  the  organ- 
ization of  civil  government  and  in  Marinduque  the  promise  of  it  were 
later  followed  by  a  surrender  of  the  insurgents;  but  such  a  result  did 
not  show  itself  in  the  other  three  provinces,  and  the  commission 
thought  best,  therefore,  in  July  to  turn  these  provinces,  though 
organized  as  civil  governments,  over  to  the  military  governor  to  be  com- 
pletely under  his  control,  in  order  that  he  might  not  be  hampered  in 
his  campaign.  With  the  organiza  .on  of  Laguna,  which  it  is  believed 
can  take  place  soon,  the  only  province  of  importance  unorganized 
under  civil  government  will  be  that  of  Samar. 

The  other  territory  of  the  archipelago  is  either  so  sparsely  settled,  or 
is  so  fully  settled  with  Moros  and  non-Christian  tribes,  that  only  a 
very  different  form  of  government  from  that  provided  for  the  civil- 
ized tribes  of  the  Filipinos  can  be  adopted.  The  provinces  of  Bontoc, 
Lepanto,  Nueva  Vizcaya,  and  the  districts  of  Mindanao,  except  the 
two  provinces  already  organized,  together  with  the  Jolo  group,  must 
all  have  a  different  form  of  control.  Possibly  another  province  can 
be  organized  in  the  Calamianes  group,  with  Cuyo  as  the  capital, 
though  this  would  be  a  very  small  one.  Mindoro,  too,  ma}^  possibly 
be  so  organized;  but  it  will  be  seen  from  this  statement  that  substan- 
tiall}'  all  the  so-called  civilized  part  of  the  archipelago,  with  the  excep- 
tion of  Samar  and  Laguna,  have  now  had  made  applicable  to  them  the 
provincial  law.  The  provinces  of  Infanta  and  Principe,  on  the  Pacific 
coast  of  Luzon,  are  narrow  provinces  some  200  miles  in  coast  extent, 
with  a  population  probably  not  exceeding  15,000  civilized  Filipinos  in 


OF    THE    PHILIPPINE    ISLANDS,    li);)()-1903.  137 

the  two.  These  will  probably  have  to  be  united  with  the  Pacific  coast 
part  of  Tayabas  and  made  a  Pacific  province,  though  the  commission 
has  not  found  time  yet  to  devote  to  the  investigation  and  solution  of 
this  problem. 

The  policy  of  the  commission  in  its  provincial  appointments  has 
been,  where  possible,  to  appoint  Filipinos  as  governors  and  Americans 
as  treasurers  and  supervisors.  The  provincial  secretary  and  the  provin- 
cial fiscal  appointed  have  uniformly  been  Filipinos.  It  will  be  observed 
that  this  makes  a  majority  of  the  provincial  board  American.  The 
commission  has,  in  several  instances,  appointed  to  provincial  offices 
former  insurgent  generals  who  have  been  of  especial  aid  in  bringing 
about  peace,  and  in  so  doing  it  has  generally  acted  on  the  earnest  rec- 
ommendation of  the  commanding  officer  of  the  district  or  province. 
We  believe  the  appointments  made  have  had  a  good  effect  and  the 
appointees  have  been  axious  to  do  their  duty. 

THE   ARMY    AND   THE   PEOPLE. 

In  order  to  put  the  provincial  governments  on  a  etrictly  civil  basis, 
General  Chaffee,  commanding  general  of  the  division,  issued  the  fol- 
lowing general  order: 

General  Orders  )       Headquarters  Division  of  the  Philippines, 
No.  179.  \  Manila,  P.  /.,  July  20,  1901. 

I.  The  following-named  provinces,  Benguet,  Pangasinan,  Bataan, 
Tayabas,  Romblon,  Oriental  Negros,  Antique,  Leyte,  Ambos  Cama- 
rines,  Marinduque,  Cavite,  Surigao,  Pampanga,  Tarlac,  Bulacan, 
Masbate,  Occidental  Negros,  Iloilo,  Capiz,  Albay,  Sorsogon,  Rizal, 
Nueva  Ecija,  Misamis,  having  been  designated  by  the  United  States 
Philippine  Commission  as  fully  organized  by  legislative  acts  and  as 
being  in  such  a  satisfactory  state  of  pacification  and  sufliciently  well 
advanced  in  all  details  of  civil  administration  as  to  warrant  passing 
under  the  civil  executive  jurisdiction  of  the  civil  governor,  it  is  ordered: 

That  wherever  municipal  police  are  organized  and,  except  as  pre- 
scribed in  paragraph  2  of  this  order,  all  United  States  troops  at  the 
several  camps  located  within  the  territorial  limits  of  the  provinces 
named  abstain  from  any  and  all  attempts  at  coercion,  control,  influence, 
or  interference  with  the  administration  of  civil  affairs. 

The  troops  will  at  once  be  put  under  an  efficient  state  of  discipline 
and  instruction  to  the  end  that  no  disorder  may  be  charged  to  their 
account  or  annoyance  caused  the  civil  administration  by  reason  of 
their  presence.  The  conduct  of  the  troops  should  facilitate  rather 
than  retard  the  maintenance  of  order,  and  all  military  persons  will 
by  their  example  show  proper  respect  for  civil  administration  and  for 
all  civil  officers. 

At  all  camps  where  the  municipal  police  has  not  been  organized  the 
troops  will  continue  to  preserve  order  as  heretofore,  until  such  time  as 
the  organization  of  a  municipal  police  is  effected,  upon  the  accomplish- 
ment of  which  the  foregoing  general  instructions  to  troops  will  obtain. 

II.  As  a  rule,  interference  by  the  military  in  civil  affairs  will  cor- 
respond to  the  well  known  procedure  in  the  United  States, 

When,  under  an  emergency,  the  civil  governor  of  the  Philippine 
Islands  shall  make  a  request  upon  the  commanding  general  of  the 


188  RKPORTS    OF    THE    CIVIL    (1(»VKRN1\IKNT 

Division  of  the  Philippines  for  the  assistance  of  troops,  the  latter  will 
bo  o•o^•ornod  bj'^  sucn  instructions  as  they  may  receive  from  these 
hoad»|iuirtors. 

WljiMi  clistiirl)ancos  be3'ond  the  control  of  the  local  municipal  police 
arise  in  remote  provinces,  not  within  telegraphic  communication, 
namely,  in  the  provinces  of  Surigao,  Masbate,  JNlarinduque,  and  Kom- 
blon,  the  senior  military  officer  on  duty  in  the  province  is  authorizt;d 
to  render  needful  assistance  to  the  civil  authority  upon  written  or  tele- 
graphic re(iuest  of  the  provincial  civil  governor. 

In  thi.s  connection  the  attention  of  all  officers  is  invited  to  the  gen- 
eral regulations  governing  such  dutj^  as  outlined  in  Article  Lll,  para- 
graphs 48(3-191,  inclusive.  Army  Regulations. 

In  cases  where  the  assistance  of  the  military  arm  has  been  asked  for 
full  report  of  the  fact  with  attending  circumstances,  action  taken,  and 
result  thereof,  will  be  promptly  submitted  through  regular  military 
channels. 

III.  In  the  provinces  of  Batangas,  Cebu,  and  Bohol  all  civil  courts 
now  in  operation  will  be  permitted  to  discharge  their  functions  in  all 
cases  of  citizen  versus  citizen  or  civil  official  versus  citizen  or  vice 
versa;  the  military  taking  over  jurisdiction  in  all  cases  where  it  is 
charged  by  a  military  officer  that  a  party  is  giving  information  or 
rendering  assistance  to  person  or  persons  engaged  directly  or  indirectly 
in  insurrection;  for  assassination  or  attempt  at  assassination  of  person 
or  persons  engaged  or  employed  in  the  military  service;  for  murder 
or  attempt  at  murder  of  citizens  because  of  service  rendered  or  sup- 
posed to  have  been  rendered  to  troops  in  any  manner  whatsoever,  either 
voluntarily  or  under  compulsion.  Military  j  urisdiction  will  also  attach 
directly  in  cases  of  all  disorders  in  places  not  actually  the  residence  of 
a  civil  judge  and  trial  by  provost  courts  will  obtain  in  such  places.  At 
place  of  residence  of  the  civil  court,  disorderly  persons,  if  arrested  by 
the  militar}^  will  be  placed  under  control  of  the  civil  court. 

The  writ  of  habeas  corpus  having  been  suspended  by  an  act  of  the 
Philippine  Commission  within  the  provinces  and  sections  above  men- 
tioned in  this  paragraph,  prisoners  in  custody  by  military  authority 
are  lawfully  detained  and  the  reasons  therefor  may  not  be  demanded 
by  any  civil  judge. 

IV.  Officers  responsible  for  revolvers,  shotguns,  ammunition  and 
equipments  therefor,  the  property  of  the  United  States,  now  in  use  by 
municipal  police,  shall  obtain  from  the  presidente  of  each  municipality 
receipts  therefor  in  quadruplicate,  one  to  be  retained  by  the  officer  and 
three  forwarded  to  these  headquarters  for  disposition  as  follows:  (1) 
To  the  civil  governor,  (2)  to  the  chief  ordnance  officer  in  the  division. 

Upon  obtaining  these  receipts  from  the  various  presidentes  the  officer 
responsible  for  the  property  will  invoice  it  to  the  chief  ordnance  officer 
of  the  division,  who  is  directed  to  receipt  therefor.  The  chief  ordnance 
officer  will  then  present  to  the  civil  governor  of  the  islands,  through 
these  headquarters,  a  bill  for  the  cost  price  of  the  foregoing  arms  and 
equipments  which,  when  paid  for,  will  become  the  property  of  the 
insular  government  as  a  means  of  arming  their  municipal  police. 

V.  In  Jolo,  Tawi  Tawi,  Zamboanga,  Cotabato,  Davao,  Dapitan, 
Paragua,  and  Mindoro,  where  provincial  civil  government  has  not 
been  established  but  where  civil  courts  have  been  instituted,  command- 
ing officers,  U2xjn  vjritten  request  of  the  courts  may  detail  an  intelligent 
noncommissioned  officer  or  private  to  serve  and  execute  written 
processes  issuing  therefrom. 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  139 

VI.  In  unorg'anized  territory,  also  in  organized  provinces,  or  parts 
thereof  under  military  jurisdiction,  collectors  of  customs,  inspectors 
of  customs,  and  collectors  of  internal  revenue  will  discharge  their 
duties  as  insular  officers,  reporting  direct  and  making  direct  return  to 
the  civil  government,  and  it  should  be  understood  by  all  commanding 
officers  that  the  foregoing  civil  officials  perform  their  functions  under 
the  direction  of  the  civil  executive  jurisdiction  of  the  civil  governor. 

VII.  Commanding  officers  of  all  militar}'  stations  will  report  at  once, 
through  proper  military  channels,  when  the  municipal  organization 
of  the  towns  in  which  they  are  located  (within  their  commands)  is  com- 
plete, giving  the  number  of  police,  their  rank,  etc.,  and  how  the}'  are 
armed. 

VIII.  Under  the  orders  of  the  President  as  contained  in  the  Executive 
order  of  June  21, 1901,  all  territory  in  the  Philippine  Islands  not  fully 
organized  for  civil  government  and  formally  transferred  to  the  civil 
government  will  remain  under  military  control,  and  its  civil  affairs  will 
be  administered  as  heretofore  through  the  executive  authority  vested 
in  the  military  governor. 

IX.  The  restoration  of  organized  provinces  to  civil  control  and  the 
extension  of  civil  government  to  territory  still  remaing  under  military 
control  will,  for  the  information  of  all  concerned,  be  announced  from 
time  to  time  in  general  orders  from  these  headquarters. 

X.  In  connection  with  the  foregoing,  the  following  act  of  the  United 
States  Philippine  Commission  is  published: 

[Act  No.  173.] 

AN  ACT  restoring  the  provinces  of  Batangas,  Cebu,  and  Bohol  to  the  executive  control  of  the  military 

governor. 

By  authority  of  the  President  of  the  United  States,  be  it  enacted  by  the  United  Stales  Philip- 
pine Commission,  That: 

Whereas  in  the  provinces  of  Batangas,  Cebu,  and  Bohol,  which  have  been  organ- 
ized as  provinces  under  the  provincial  government  act,  armed  insurrection  continues, 
and  in  the  opinion  of  the  commission  it  will  facilitate  the  pacification  of  these  prov- 
inces to  remove  them  from  the  executive  control  of  the  civil  governor  and  to  put 
them  under  the  executive  control  of  the  military  governor. 

Section  1.  The  provincial  and  municipal  officers  of  the  provinces  of  Batangas,  Cebu, 
and  Bohol  shall  report  to  the  military  governor,  and  the  military  governor  shall  have 
the  power  to  remove  them  and  appoint  others  in  their  places,  anything  in  the  provin- 
cial act,  the  special  acts  organizing  said  provinces,  or  the  municipal  code  to  the  con- 
trary notwithstanding. 

Sec.  2.  In  case  of  milita,ry  necessity,  the  military  governor  shall  have  the  power  to 
suspend  the  operation  of  any  part  of  the  laws  of  the  commission  applicable  to  the 
government  of  the  provinces  above  named,  and  to  substitute  therefor,  temporarily, 
general  orders  having  the  effect  of  law. 

Sec.  3.  The  writ  of  habeas  corpus  in  the  civil  courts  of  the  three  provinces  named 
shall  not  issue  therefrom  for  the  release  of  prisoners  detained  by  order  of  the  military 
governor  or  his  duly  authorized  military  subordinates. 

Sec.  4.  The  courts  established  by  the  commission  in  the  three  provinces  above 
named  shall  continue  to  discharge  their  ordinary  functions,  civil  and  criminal,  pro- 
vided that  the  military  governor  is  empowered  to  provide  for  the  trial  of  ordinary 
crimes  and  misdemeanors  by  military  commissions  and  provost  courts,  and  to  desig- 
nate what  of  the  ordinary  crimes  and  misdemeanors  shall  be  tried  before  such  coni- 
missions  or  i)rovost  court.s,  and  what  crimes,  if  any,  shall  be  tried  in  the  civil  courts. 

Sec.  5.  The  public;  good  re(]airing  the  speedy  enactment  of  this  bill,  the  passage  of 
the  same  is  hereby  expedited  in  accordance  with  section  2  of  "An  act  prescribing  the 
order  of  procedure  by  the  commission  in  the  enactment  of  laws,"  passed  September 
26,  ]900. 

Sec.  6.  This  act  shall  take  effect  on  its  passage. 

Enacted,  July  17,  1901. 

By  command  of  Major-Gencral  Chaffee: 

W.  P.  Hall, 

Assistant  Adjutant-  General. 


140  KKl'ORTS    OF    THE    CIVIL    GOVKRNMKNT 

One  of  the  yivut  desires  of  the  people  of  the  provinces  is  protection 
a.o-uiiist  the  robbers  and  ladronc^s  of  their  own  race.  They  have  wished 
for  the  presence  of  Anierictin  troops  to  atford  them  this  pi-otection. 
Troops  spend  money  in  the  towns  where  they  are  stationed  and  this 
also  makes  their  presence  desiral)le.  But  these  benclits  arc  l)ecomino- 
more  and  more  oH'set  b}^  disad\'antaoes  that  cause  a  jrood  deal  of  irri- 
tation, and  the  people  would  now  much  prefer  immediate  protection 
by  means  of  civil  police.  The  army  occupies  the  priest's  house  or 
convento,  municipal  and  provincial  buildings,  the  schoolhouses,  and 
often  many  of  the  best  private  houses  for  officers'  quarters,  while  their 
owners  are  required  to  live  in  nipa  shacks.  Rents  are  arbitrarily  fixed 
and  in  many  instances  are  either  paid  at  long-  intervals  or  not  at  all. 
It  does  not  promote  the  best  feeling  to  throw  soldiers  and  natives  so 
closely  together  as  this  quartering  of  soldiers  involves,  especially  if 
discipline  is  lax,  as  it  sometimes  is,  and  the  longer  these  conditions  con- 
tinue the  more  irritating  they  will  become.  Nothing  would  delight 
the  people  of  the  provinces  more  than  to  see  the  American  soldiers 
withdrawn  to  posts  outside  the  towns.  It  would  be  vastly  better  for 
the  people  and  the  soldiers.     The  change  is  urgently  recommended. 

THE    CENTRAL   GOVERNMENT. 

The  central  government  of  the  islands  established  in  September, 
1900,  under  the  instructions  of  the  President,  with  a  military  gov- 
ernor as  chief  executive  and  the  commission  as  the  legislative  body 
with  certain  executive  functions  in  addition,  continued  until  the  4th 
of  July,  1901.  At  that  time  Maj.  Gen.  Adna  R.  Chaffee  relieved 
Major-General  MacArthur  as  commanding  general  of  this  division  and 
military  governor.  By  the  order  of  June  21,  previous,  in  all  organ- 
ized provinces  the  civil  executive  authority  theretofore  reposed  in 
the  militarj^  governor  and  in  the  commission  was  transferred  on  July 
4  to  a  civil  governor.  The  president  of  the  commission  was  designated 
as  civil  governor.  He  was  inaugurated  with  appropriate  ceremonies 
on  July  4.  His  inaugural  address  is  appended  to  the  report  as 
Appendix  D. 

By  an  order  taking  effect  September  1,  the  purport  of  which  was 
announced  the  4th  day  of  July,  there  were  added  to  the  commission, 
as  a  legislative  body,  three  Filipinos,  Dr.  T.  H.  Pardo  de  Tavera, 
Senor  Benito  Legarda,  and  Seiior  Jose  Luzuriaga.  These  gentlemen, 
the  first  two  of  them  residents  of  Manila  and  the  last  a  resident  of  the 
island  of  Negros,  had  been  most  earnest  and  efficient  in  bringing 
about  peace  in  the  islands.  Dr.  Tavera  was  the  first  president  of  the 
Federal  party,  had  accompanied  the  commission  in  its  trii)s  to  the 
southern  provinces,  and  was  most  useful  in  the  effective  speeches 
which  he  delivered  in  favor  of  peace  and  good  order  at  every  provin- 
cial meeting.     Seiior  Legarda  had  been  valuable  in  the  extreme  to 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  141 

General  Oti.-s  and  to  all  the  American  authorities  by  the  wisdom  of  his 
suggestions,  and  the  courage  and  earnestness  with  which  he  upheld 
the  American  cause  as  the  cause  most  beneficial  to  his  countiy. 
Senor  Jose  Luzuriaga  was  a  member  of  the  first  government  of  the 
island  of  Negros,  organized  while  there  was  insurrection  rife  through- 
out the  islands,  as  an  independent  government  under  the  supervision 
of  a  military  governor,  and  was  most  active  in  preventing  the  insur- 
rection from  gaining  any  foothold  in  that  important  island. 

The  commission  has  organized  from  time  to  time  various  bureaus 
and  offices  for  carrying  o\x  the  business  of  the  central  government. 
Your  order  appointing  Mr.  Lawshe  auditor,  and  the  laws  which  were 
passed  at  your  and  his  suggestion  by  the  commission,  have  placed  the 
accounting  departments  of  the  government  on  a  most  satisfactory 
basis.  His  experience  in  Cuba  and  in  the  departments  of  the  United 
States  Government  has  been  invaluable  to  the  commission.  It  has 
been  an  herculean  task  for  him  to  readjust  the  system  which  was 
hastily  constructed  under  the  pressure  of  war,  and  to  restate  all  the 
accounts  when  there  was  necessarily  considerable  looseness  in  the 
expenditure  of  the  public  civil  funds  by  officers  charged  at  the  same 
time  with  duties  both  military  and  civil.  A  man  engaged  in  fighting 
in  the  field  all  day  is  not  likely  to  be  as  accurate  and  as  careful  in  the 
keeping  of  his  accounts  as  a  civil  official  who  has  nothing  else  to  do. 
That  irregularities  crept  in  was  to  be  expected,  but  it  is  gratifying  to 
know  that  the  auditor  has  discovered  no  corruption.  His  chief  criti- 
cism is  against  the  manner  of  keeping  the  accounts,  which  he  has 
thoroughly  reformed  and  put  upon  the  same  basis  as  that  which 
obtains  in  the  United  States. 

We  have  also  been  fortunate  in  securing  the  services  of  Mr.  Frank 
A.  Branagan  as  treasurer  of  the  archipelago.  He  accompanied  the 
commission  as  disbursing  officer  and  official  accountant.  He  had  long 
been  disbursing  officer  of  the  State  Department,  and  for  years  prior 
had  filled  the  same  position  in  the  Department  of  Justice.  He  was 
entirely  familiar  with  the  methods  of  governmental  deposits  and  the 
custody  and  disbursement  of  money.  He  was  able,  therefore,  to 
assist  Mr.  Lawshe  in  reforming  methods  of  accounting,  and  has  ))oon 
especially  useful  in  supervising  and  restricting  the  expenditures  of 
provincial  offices,  a  duty  enjoined  on  him  by  the  provincial  law. 

The  other  bureaus  and  offices  need  not  here  be  referred  to,  but 
attention  will  be  called  to  them  at  a  later  part  of  this  report.  It 
will  be  sufficient  to  say  here  that  by  an  order  of  President  McKinley 
which  went  into  efiect  September  1  the  four  members  of  the  original 
commission  were  made  the  heads  of  four  executive  departments,  which 
embraced  within  their  supervisory  control  all  the  bureaus  and  offices 
of  the  government,  except  those  which  were  retained  for  the  personal 
23181—04 10 


142  REPORTS    OF    THE    CIVIL    OOVERNMENT 

direction  of  the  civil  governor.  The  central  government  as  at  present 
constituted  is  thus  organized: 

A  civil  governor,  having  general  supervision  over  the  four  executive 
departments  and  having  direct  supervision  over  the  following: 

The  civil  governor;  an  executive  secretary;  the  civil  service  board; 
the  insular  purchasingagent;  the  municipal  and  provincial  governments. 

The  diijjartnient  of  the  interior. — The  bureau  of  health;  the  quaran- 
tine service  of  the  marine  hospital  corps;  the  bureau  of  forestry;  the 
bureau  of  mining;  the  bureau  of  agriculture;  a  bureau  of  fisheries; 
the  weather  bureau;  the  bureau  of  non-Ch;-istian  tribes;  the  bureau 
of  public  lands;  the  bureau  of  government  laboratories,  and  the  bureau 
of  patents  and  copyrights. 

The  department  of  commerce  and  police. — A  bureau  of  island  and 
inter- island  transportation;  the  bureau  of  post-offices;  the  bureau  of 
telegraphs;  the  bureau  of  coast  and  geodetic  survey;  a  bureau  of 
engineering  and  construction  of  public  works  other  than  public  build- 
ings; a  bureau  of  insular  constabulary;  a  bureau  of  prisons;  a  bureau 
of  light-houses;  a  bureau  of  commercial  and  street  railroad  corpora- 
tions, and  all  corporations  except  banking. 

The  department  of  finance  and  justice. — The  bureau  of  the  insular 
treasury;  the  bureau  of  the  insular  auditor;  the  bureau  of  customs 
and  immigration;  the  bureau  of  internal  revenue;  the  insular  cold 
storage  and  ice  plant;  a  bureau  of  banks,  banking,  coinage  and  cur- 
rency, and  the  bureau  of  justice. 

The  department  of  public  instruction. — The  bureau  of  public  instruc- 
tion; a  bureau  of  public  charities,  public  libraries,  and  museums;  the 
bureau  of  statistics;  a  bureau  of  public  records;  a  bureau  of  public 
printing,  and  a  bureau  of  architecture  and  construction  of  nublic 
buildings. 

THE    INSULAR   PURCHASING   AGENT. 

An  important  bureau  which  the  commission  has  found  it  necessary 
to  create  is  that  of  the  insular  purchasing  agent.  The  supplies  needed 
in  the  provincial  governments  and  in  the  various  offices  of  the  central 
government  are  so  man}^  and  various  and  it  is  often  so  difficult  to  pro- 
cure what  is  needed  without  sending  to  the  United  States  for  it,  that 
it  has  been  found  necessary  to  require  by  law  that  all  purchases  of 
supplies  for  the  provincial  and  central  governments  should  be  made 
through  one  person.  He  is  furnished  with  a  large  sum  of  money  with 
which  to  buy  a  stock  of  the  supplies  likely  to  be  needed  and  is  empow- 
ered to  sell  them  to  each  province  and  bureau  which  needs  them  and 
to  charge  them  the  cost  price  with  10  per  cent  added.  To  him  also  is 
intrusted  the  duty  of  making  contracts  for  official  transportation  over 
the  steamship  lines  of  the  islands  and  also  of  furnishing  the  official 
cab  transportation  in  the  city  of  Manila.     The  office  is  a  most  impor- 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  143 

tant  one.  The  information  which  the  incumbent  has  as  to  the  proper 
method  of  purchasing  at  reasonable  rates  is  a  source  of  much  economy 
to  the  general  government. 

COMMITTEES   OF   COMMISSION. 

The  commission,  with  its  new  members,  has  reorganized  its  commit- 
tees, which  are  as  follows: 

Agriculture  and  Fisheries. — Commissioner  Luzuriaga,  chairman; 
Commissioners  Worcester  and  Tavera. 

Ap2Jro2)riations. — Commissioner  Ide,  chairman;  Commissioners 
Luzuriaga  and  Tavera. 

Banhing  and  Currency. — Commissioner  Luzuriaga,  chairman;  Com- 
missioners Ide  and  Legarda. 

City  of  Manila. — Commissioner  Legarda,  chairman;  the  president 
and  Commissioner  Ide. 

Commerce. — Commissioner  Wright,  chairman;  Commissioners  Luzu- 
riaga and  Ide. 

Franchises  and  Corporations. — Commissioner  Wright,  chairman; 
the  president  and  Commissioner  Legarda. 

Health. — Commissioner  Tavera,  chairman;  Commissioners  Worces- 
ter and  Moses. 

Judiciary. — Commissioner  Ide,  chairman;  Commissioner  Wright 
and  the  president. 

Municipal  and  Provincial  Governments. — Commissioner  Tavera, 
chairman;  the  president  and  Commissioner  Worcester. 

Non- Christian  Tribes. — Commissioner  Worcester,  chairman;  Com- 
missioners Tavera  and  Wright. 

Police  and  Prisons. — Commissioner  Wright,  chairman;  Commis- 
sioners Legarda  and  Moses. 

Printing. — Commissioner  Moses,  chairman;  Commissioner  Tavera 
and  the  president. 

Pvhlic  Instruction. — Commissioner  Moses,  chairman;  Commis- 
sioners Tavera  and  Worcester. 

Public  Lands.,  Mining.,  and  Forestry. — Commissioner  Worcester, 
chairman;  the  president  and  Commissioner  Luzuriaga. 

Taxation  and  Revenue. — Commissioner  Legarda,  chairman;  Com- 
missioners Ide  and  Moses. 

GENERAL  THEORY  IN  FORMATION  OF  THE  GOVERNMENT. 

The  theory  upon  which  the  commission  is  proceeding  is  that  the 
only  possible  method  of  instructing  the  Filipino  people  in  methods  of 
free  institutions  and  self-government  is  to  make  a  government  partly 
of  Americans  and  parti}'  of  Filipinos,  giving  the  Americans  the  ulti- 
mate control  for  some  time  to  come.  In  our  last  report  we  pointed 
out  that  the  great  body  of  the  people  were  ignorant,  superstitious, 


144  KKl'OKTS    OF    THE    CiViL    OOVKUNMENT 

:uul  :it  pivsoiit  inctipable  of  understanding  any  oovcrnnicnt  but  that  of 
absolutism.  The  intelligence  and  education  of  the  people  may  be 
hu'oely  measured  by  knowledge  of  the  Spanish  language.  Less  than 
10  per  cent  of  the  people  speak  Spanish.  With  Spaniards  in  control 
of  these  islands  for  four  hundred  years  and  with  Spanish  spoken  in 
all  official  avenues,  nothing  could  be  more  significant  of  the  lack  of 
real  intelligence  among  the  people  than  this  statement.  The  conunon 
people  are  not  a  warlike  people,  but  are  submissive  and  easily — indeed 
nuich  too  easil}'^ — controlled  by  the  educated  among  them,  and  the 
power  of  an  educated  Filipino  politicall}^  ambitious,  willing  to  plot 
and  use  all  the  arts  of  a  demagogue  in  rousing  the  people,  is  cpiite 
dangerous.  The  educated  people  themselves,  though  full  of  phrases 
concerning  liberty,  have  but  a  faint  conception  of  Avhat  real  civil  lib- 
erty is  and  the  mutual  self-restraint  which  is  involved  in  its  main- 
tenance. The}^  find  it  hard  to  understand  the  division  of  powers  in  a 
government  and  the  limitations  that  are  operative  upon  all  officers,  no 
matter  how  high.  In  the  municipalities,  in  the  Spanish  days,  what 
the  friar  did  not  control  the  presidente  did,  and  the  people  knew  and 
expected  no  limit  to  his  exercise  of  authority.  This  is  the  difficulty 
we  now  encounter  in  the  organization  of  the  municipality.  The  presi- 
dente fails  to  observe  the  limitations  upon  his  power,  and  the  people 
are  too  submissive  to  press  them. 

In  this  condition  of  affairs  we  have  thought  that  we  ought  first  to 
reduce  the  electorate  to  those  who  could  be  considered  intelligent,  and 
so  the  qualifications  for  voting  fixed  in  the  municipal  code  are  that  the 
voter  shall  either  speak,  read,  and  write  English  or  Spanish,  or  that 
he  shall  have  been  formerly  a  municipal  officer,  or  that  he  should  pay 
a  tax  equal  to  $15  a  year  or  own  property  of  the  value  of  $250.  It  has 
been  proposed,  and  the  commission  will  probal)ly  adopt  an  amendment 
in  accordance  with  the  proposal,  that  the  payment  of  a  tax  of  more 
than  $15  as  a  license  for  a  saloon  shall  not  constitute  a  qualification. 
In  fixing  these  qualifications  we  followed  the  recommendations  of  all 
the  Filipinos  whom  we  consulted,  except  that  there  were  many  of  them 
who  advocated  a  higher  qualification.  Many  of  the  common  people 
will  be  brought  within  these  qualifications  in  one  generation  by  the 
widespread  system  of  education  which  is  being  inaugurated,  and  thus 
gradually  the  electorate  will  be  enlarged.  Meantime,  it  is  necessary 
by  practical  lessons  and  actual  experience  to  eliminate  from  the  minds 
of  the  more  intelligent  part  of  the  community  who  form  the  electorate 
those  ideas  of  absolutism  in  government  and  to  impress  the  concep- 
tion of  a  limitation  upon  power  which  it  is  now  so  difficult  for  them  to 
understand. 

In  addition  to  the  defect  spoken  of  there  is  another.  This  is  an  abso- 
lute lack  of  an}'  sense  of  responsibility  on  the  part  of  a  public  officer 
to  the  public  at  large.    Office  has  always  been  regarded  as  a  source  of 


OF    THE    PHILIPPINE    ISLANDS,    1900-190;5.  I-IS 

private  profit  and  as  a  means  of  gratifying  private  desires,  either  hate 
or  friendsliip.  We  have  thought  that  by  establishing  a  form  of  munici- 
pal government  practically  autonomous,  with  a  limited  electorate,  and 
by  subjecting  its  operations  to  the  scrutiny  and  criticism  of  a  provin- 
cial government  in  which  the  controlling  element  is  American,  we 
could  gradualh"  teach  them  the  method  of  carrying  on  government 
according  to  American  ideas.  In  the  provincial  government  Filipinos 
are  associated  intimatel}"  with  Americans,  and  in  the  central  govern- 
ment the  same  thing  is  true.  As  the  government  proceeds  this  asso- 
ciation in  actual  government  will  certainly  form  a  nucleus  of  Filipinos, 
earnest,  intelligent,  patriotic,  who  will  become  familiar  with  practical 
free  government  and  civil  liberty.  This  saving  remnant  will  grow  as 
the  years  go  on  and  in  it  will  be  the  hope  of  this  people. 

How  long,  it  is  asked,  must  this  education  be  continued  before  real 
results  will  be  accomplished?  Of  course  it  is  impossible  to  tell. 
Certainly  a  generation — perhaps  two  generations — will  be  needed, 
though  a  thorough  system  of  public  education,  the  introduction  of 
railways  and  the  intercommunication  of  all  sorts,  and  the  rapid 
material  development  of  the  country,  which  is  quite  possible,  would 
greatly  assist  in  this  instruction.  The  Filipino  people  are  not  a  stupid 
people.  They  are  bright  and  imitative.  They  are  quick  and  anxious 
to  learn  and  are  ambitious.  They  lack  in  persistence  and  power  of 
application,  but  we  are  by  no  means  discouraged  at  the  prospect  of 
successfully  fitting  them  for  self-government.  As  it  is  now,  however, 
the  one  fact  which  is  clear  above  every  other  is  that  these  people  are 
not — either  the  small  minority  of  educated  people  or  the  ver}^  large 
majority  of  ignorant  people — prepared  to  establish  a  government 
which  would  hold  together  for  any  length  of  time,  and  which  would 
not  in  a  very  short  time  present  all  the  oppression  and  all  the  evils 
which  were  known  in  Spanish  times. 

It  is  perhaps  right  that  we  should  express  our  views  as  to  the 
wisest  course  for  Congress  to  take  at  the  coming  session.  We  think 
that  if  Congress  were  to  give  the  present  government  the  benefit  of 
Congressional  authorit}"  to  continue  under  the  limitations  which  it 
now  has  by  virtue  of  the  President's  instructions  until  January,  1904, 
this  would  probablv  give  time  enough  to  form  a  complete  government 
as  a  going  concern,  and  at  the  end  of  that  time  provisions  might  well 
])e  made  for  a  change  in  the  form  of  the  government,  so  that  it  should 
consist  of  a  civil  governor,  of  a  legislative  council,  and  of  a  popular 
asseml)!}^  chosen  by  a  limited  electorate.  There  should  be  these  lim- 
itations upon  the  power  of  the  popular  assembly,  to  wit,  first,  that 
it  should  sit  annuall}'  for  three  months,  from  the  1st  da}"  of  Januarj^ 
to  the  1st  day  of  April,  and  then  that  its  power  of  legislation  should 
cease  in  each  year  unless  sunmioned  for  a  definite  period  in  special 
session  by  the  governor;  secondly,  if  during  the  three  months  of  its 


146  REPORTS    OF    THE    CIVIL    GOVERNMENT 

regular  session  it  failed  to  vote  the  supplies  necessary  for  the  carrying 
on  of  the  government  as  provided  by  law,  the  right  to  vote  these  sup- 
plies should  be  vested  in  the  legislative  council.  The  governor  should 
have  the  nioditicd  veto  power.  The  legislative  council,  to  consist  of 
Americans  and  Filipinos,  should  be  created  by  appointment  of  the 
President.  The  popular  assembly  should  not  exceed  30  in  number, 
to  be  elected  from  districts  to  be  determined  after  a  census  of  the 
islands. 

We  are  aware  that  the  power  finally  to  withhold  supplies  is  a  most 
important  legislative  function,  and  that  to  modify  it  in  the  way  sug- 
gested is  not  usual.  But  we  think  the  modification  very  essential.  A 
popular  assembl}^  elected  from  people  never  in  the  habit  of  of  exercis- 
ing an}^  political  power  at  all,  in  a  country  which  has  been  exposed  to 
the  passions  of  war  for  so  many  years,  is  certain  to  have  in  it  many 
members  lacking  altogether  in  that  sense  of  responsibility  for  the 
operation  of  the  government  which  must  be  present  in  each  legislative 
branch  in  order  to  make  certain  that  the  government  may  live,  and 
we  ought  not  deliberately  to  form  a  government  containing  in  it  one 
branch  which  might,  because  of  its  passion  and  inexperience,  be  led 
into  choking  the  government  itself. 

It  will  be  observed  that  in  respect  to  all  other  legislation  except  the 
voting  of  supplies  this  popular  assembl}^  would  exercise  the  same  power 
as  any  popular  assembly  in  a  similar  government,  and  its  vote  would 
be  indispensable  to  the  passage  of  all  laws  but  the  budget.  We  believe 
that  this  system  would  satisfy  the  Filipino  people,  because  it  would 
give  them  an  opportunity  to  take  part  in  the  government  through  an 
electorate,  and  it  would  form  a  place  in  which  public  discussion  could 
be  effectivel}^  had.  Of  course  an  absolute  veto  power,  as  in  the  case 
of  the  Territories,  should  be  reserved  to  the  President  or  Congress. 
What  the  Filipino  people  desire  is  a  definite  knowledge  of  the  inten- 
tion of  Congress  with  respect  to  this  country,  and  the  passage  of  a  law 
such  as  the  one  here  indicated  would  place  before  them  within  a  definite 
period  the  opportunity  for  that  which  they  wish — a  popular  assembly. 
With  definite  knowledge  of  the  time  of  its  creation,  they  will  be  satis- 
fied during  the  two  years  of  the  interval  in  which  the  government,  but 
parti}'  now  established,  may  be  rounded  out  and  completed. 

We  respectfully  urge  that  Congress  be  requested  to  confirm  the 
legislation  of  the  commission  already  enacted  and  vest  by  Congres- 
sional act  in  the  civil  governor  and  commission  and  their  successors 
b}'  appointment  of  the  President  the  powers  and  authority  heretofore 
exercised  by  them  under  the  instructions  of  the  President  and  subse- 
quent modifications  thereof,  with  the  limitations  therein  contained, 
and  that  provision  be  made  in  such  legislation  for  the  popular  assembly 
alread}'  described,  to  begin  its  life  January,  1904. 

We  further  recommend  that  b}-  the  act  establishing  the  government 


OF    TEE    PHILIPPINE    ISLANDS,    1900-1903.  147 

aDove  recommended  provision  be  made  for  the  selection  after  Januarj^, 
1904,  by  a  joint  vote  of  the  popular  assembly  and  the  executive  council 
of  two  delegates  to  represent  the  interests  of  these  islands  and  the 
Filipino  people  before  Congress  and  the  Executive  at  Washington. 
Their  expenses  and  salaries  should  be  paid  from  the  insular  treasury. 
This  is  something  which  the  Filipino  people  have  very  much  at  heart. 
We  believe  that  such  representation  would  be  useful  both  to  these 
islands  and  to  the  United  States. 

THE    CIVIL   SERVICE. 

The  civil-service  law  has  been  in  operation  since  our  last  report,  and 
we  see  no  reason  to  change  our  conclusion  as  to  the  absolute  necessit}^ 
for  its  existence  and  strict  enforcement.  Without  this  law  American 
government  in  these  islands  is,  in  our  opinion,  foredoomed  to  humili- 
ating failure.  Even  if  all  its  provisions  are  enforced,  it  is  likel}-  to 
be  very  difficult  to  secure  and  keep  in  the  service  honest,  competent 
Americans  who  will  enter  into  the  spirit  of  the  missionaiy  task 
involved  in  the  successful  government  of  these  islands. 

Complaints  have  arisen  on  the  part  of  Filipinos  that  the}"  have 
not  been  given  the  same  opportunity  that  Americans  have  had  to 
secure  places  with  equal  salaries,  and  the  complaint  is  true  to  this 
extent:  The  executive  officers  of  the  central  government  are  almost 
all  of  them  English-speaking  officers,  and  a  clerk  to  do  efficient  work 
should  read,  write,  and  speak  English.  Up  to  this  time  very  few 
adult  Filipinos  have  so  thoroughl}^  learned  English  as  to  be  fluent 
enough  to  pass  examinations  for  such  positions;  but  the  heads  of 
bureaus,  under  instructions  from  the  commission,  are  graduall}'  work- 
ing Filipinos  into  place,  and  the  Filipinos  are  graduall}"  picking  up 
English.  The  Filipinos  are,  as  a  rule,  beautiful  penmen,  but  they 
lack  accuracy  and  close  attention.  It  is  the  opinion  of  competent 
judges,  however,  that  each  j^ear  will  see  a  larger  proportion  of  Fili- 
pinos in  the  higher  positions  and  that  this  complaint  against  the 
operation  of  the  law  will  be  seen  to  have  its  basis  in  temporary  con- 
ditions only. 

There  are  no  Filipino  stenographers,  and  we  find  great  difficulty  in 
securing  a  sufficient  number  of  stenographers  among  the  Americans. 
We  have  been  obliged  to  send  to  the  United  States  a  number  of  times 
for  clerks  of  this  class,  and  still  all  the  departments  of  this  rapidly 
expanding  government  are  complaining  of  the  dearth  of  those  most 
important  aids  to  the  rapid  transaction  of  l)usiness. 

The  civil-service  board,  whose  report  is  hereto  appended  as  Appendix 
E,  is  now  at  our  suggestion  taking  steps  to  classify  the  school-teachers 
alread}'  appointed  with  a  view  to  amending  the  law  so  as  to  bring  that 
large  class  within  the  restrictions  of  the  civil-servi(;e  law  and  to  require 
that  future  appointments  shall  onl}^  be  made  after  examinations.     The 


148  REPOKTS    OF   THE    CIVIL    GOVERNMENT 

report  of  the  board  shows  the  extent  of  its  activiti(>s  and  the  very 
many  useful  purposes  it  serves  in  the  preparation  of  legislation  upon 
the  ciuestion  of  employees  and  salaries  as  well  as  in  its  usual  fields  of 
examinations,  classification,  certifications,  and  rules. 

FIDELITY   BONDS. 

The  commission  has  found  difficulty  in  the  matter  of  securing  proper 
and  sufficient  bonds  for  those  of  its  civil  servants  who  are  intrusted 
with  the  collection,  custody,  and  disbursement  of  money.  Under  the 
military  regime  it  was  deemed  sufficient  security  that  an  officer  was 
subject  to  military  discipline  for  any  malversation  of  funds,  and  no 
bond  was  required.  This  made  it  necessary  that  every  position  of 
money  responsibility  should  be  filled  by  an  army  officer.  After  the 
1st  of  July,  1901,  when  the  volunteer  officers  were  mustered  out,  some 
other  provision  had  to  be  made.  It  was  impossible,  of  course,  for 
Americans  to  secure  personal  indemnity  in  the  islands.  In  the  fall  of 
1900  letters  were  written  to  all  the  fidelity  companies  in  the  United 
States  inviting  them  to  send  agents  to  the  Philippine  Islands  for  the 
purpose  of  bonding  government  employees.  Answers  were  received 
from  nearly  all  of  them  declining  to  extend  their  business  to  these 
islands.  Finally,  through  the  assistance  of  your  Department,  one 
company,  the  Union  Surety  and  Guaranty  Company,  was  induced  to 
send  an  agent  to  Manila,  who  reached  here  in  May  of  this  year,  and 
an  arrangement  was  made  between  the  company  and  the  government 
by  which  at  quite  high  rates— 1  per  cent  for  all  bonds  of  $6,000  or 
over,  li  per  cent  for  all  bonds  of  |3,000  to  $6,000,  and  2  per  cent  for 
all  bonds  under  $3,000— all  the  employees  of  the  government  required 
by  law  to  give  bonds,  secured  them.  In  order  to  reduce  the  cost  of  the 
insurance  to  the  employees,  the  government  pays  three-fourths  of  the 
expense.  It  is  hoped  that  the  result  of  the  year's  business  will  show 
that  the  checks  are  sufficient  not  to  make  the  risk  so  great  as  the  com- 
pany anticipated  and  that  competition  will  be  introduced,  so  that  a 
lower  rate  may  be  obtained.  Indeed,  the  American  Surety  Company 
has  now  sent  an  agent  to  the  islands.  It  was  absolutely  necessary, 
however,  that  some  arrangement  of  this  kind  should  be  made  on  July 
1  last,  even  at  the  high  rates  mentioned. 

friars'  lands. 

The  commission  renews  its  recommendations  of  last  year  that  it  be 
given  authority  to  issue  bonds  with  which  to  buy  up  the  agricultural 
holdings  and  other  property  of  the  religious  orders.  Now  that  peace 
is  being  restored  and  civil  courts  are  exercising  ordinary  jurisdiction, 
the  necessity  for  removing  this  firebrand  from  the  important  provinces 
of  Cavite,  Laguna,  Rizal,  Bulacan,  and  Bataan  can  not  be  overstated. 
Under  the  military  regime  it  was  entirely  possible  by  military  order 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  149 

for  military  reasons  to  forbid  the  owners  of  these  lands  from  attempt- 
iuo-  either  to  collect  their  rents  or  to  oust  their  tenants;  but  now  no 
such  arbitrary  remedy  is  available,  and  the  only  course  which  is  feasi- 
ble is  the  one  suggested.  The  commission  believes  itself  in  a  position 
to  say  that  there  is  a  willingness  on  the  part  of  those  who  have  con- 
trol of  this  matter  for  the  religious  orders  to  negotiate  and  part  with 
all  the  land  to  the  Government  at  reasonable  prices.  As  it  has  alreadj'^ 
stated  in  its  former  report,  the  commission  believes  that  the  transfer 
of  the  property  and  its  sale  in  small  holdings  to  the  present  tenants, 
on  long  payments,  might  be  effected  without  loss,  and  that  this  solu- 
tion would  be  very  satisfactory  to  all  the  people.  The  commission 
should  be  authorized,  in  case  its  view  of  the  matter  is  approved,  to 
issue  bonds  in  an  amount  sufficient  to  buy  the  lands,  and  should  be 
required  to  hold  the  proceeds  of  the  sales  of  such  lands  as  a  sinking 
fund  to  meet  the  obligations  of  the  bonds.  We  earnestlj^  recommend 
this  course.  The  matter  is  a  pressing  one,  for  the  action  of  the  courts 
in  enforcing  legal  decrees  in  favor  of  the  real  owners  of  the  land 
against  the  tenants  will  be  a  constant  source  of  irritation,  riot,  and 
lawlessness  in  the  provinces  where  the  land  is,  and  this  will  lead  to 
distrust  and  uneasiness  everywhere. 

The  acreage,  as  stated  in  our  last  report,  of  the  land  owned  by  friars 
in  the  provinces  where  the  population  is  dense  and  the  question  is  a 
heated  one,  is:  Cavite,  121,747  acres;  Laguna,  62,172  acres;  Manila 
Province  (now  Rizal),  50,115  acres;  Bulacan,  39,441  acres;  Cebu, 
16,413  acres;  Morong  (now  Rizal),  4,940  acres;  Bataan,  1,000  acres — 
upward  of  300,000  acres.  In  addition  to  this  there  are  something 
more  than  100,000  acres,  one-half  in  Isabela  and  one-half  in  Mindoro, 
in  regions  sparsely  settled,  the  ownership  of  which  by  the  friars  does 
not  involve  so  much  popular  resentment  because  of  their  remoteness. 

SAN   JOSE    COLLEGE    CASE. 

Since  our  last  report  the  commission  announced  its  conclusion  in 
the  San  Jose  College  controversy.  It  decided  that  there  was  between 
the  Catholic  Church  on  the  one  hand  and  the  petitioners  representing 
the  Filipino  public  on  the  other  a  controversy  concerning  the  legal 
control  of  the  trust  involving  sufficiently  serious  questions  of  law  to 
submit  the  case  to  a  competent  tribunal.  The  commission  was  careful 
not  to  express  any  view  on  the  merits.  To  put  the  case  in  way  of  set- 
tlement, the  commission  passed  a  law  appointing  a  board  to  represent 
the  interests  of  the  Filipino  people,  in  the  name  of  the  United  States, 
and  to  bring  suit  in  the  supreme  court  of  the  islands  against  the  arch- 
bishop of  Manila  and  the  friar  in  immediate  control  of  the  estate  of 
the  college.  The  act  fixed  the  procedure  and  postponed  the  time 
within  which  the  judgment  in  the  supreme  court  of  the  islands  should 
be  final  to  the  end  of  the  term  of  the  present  Congress,  in  order  that 


150  REPORTS    OF    THE    CIVIL    OOVERNMENT 

pro\Msion  niiofht  be  niiide,  if  deemed  wise,  for  an  appeal  to  the  Supreme 
Court  of  the  United  States.  It  seems  to  us  that  such  an  appeal  ought 
to  be  provided  for.  The  importance  of  the  cause  ma}^  be  understood 
from  the  opinion  of  the  commission  in  disposing  of  it,  reported  in 
the  second  (juarter's  volume  of  the  comuiission  laws.  The  suit  has 
been  brought  and  is  now  pending  before  the  supreme  court,  and  will 
be  heard  within  the  next  three  months. 

As  stated  in  our  former  report,  there  are  other  controversies  likely 
to  be  brought  into  the  courts  of  the  islands  between  the  Catholic 
Church  and  the  insular  government  in  respect  to  the  title  to  and  the 
administration  of  trust  or  other  property.  The  intimate  association 
between  the  Spanish  Government  and  the  Catholic  Church  and  the 
difficulty  of  separating  what  is  civil  and  what  is  church  property  is  so 
great  and  presents  questions  of  such  delicacy  from  a  political  stand- 
point that  we  recommend  that  in  all  such  cases  an  appeal  be  granted 
from  the  supreme  court  of  the  islands  to  the  Supreme  Court  of  the 
United  States. 

TAXATION. 

In  the  plan  of  the  commission  the  central  government  must  depend 
mainly  on  import  and  export  duties  for  its  support.  The  internal 
taxes  of  whatever  character  are  principally  to  be  devoted  to  the  sup- 
port of  the  provincial  and  municipal  governments.  In  pursuance  of 
this  purpose,  Avhenever  a  provincial  government  is  organized,  one-half 
of  the  internal-revenue  receipts,  i.  e.,  the  industrial,  urbana,  and 
stamp  taxes,  since  January,  1901,  is  turned  over  to  the  provincial 
treasury,  and  the  remaining  one-half  is  turned  over  to  the  municipal- 
ities of  the  province.  A  cedula  or  poll  tax  of  $1  Mexican  is  levied 
upon  each  male  person  between  the  ages  of  18  and  65,  and  one-half 
the  proceeds  is  paid  into  the  treasury  of  the  town  in  which  he  lives 
and  one-half  into  the  provincial  treasury.  In  addition,  the  municipal 
council  has  power  to  license  saloons  and  other  businesses  requiring 
police  supervision  and  mentioned  in  the  municipal  code.  During  the 
spring  of  1902  will  be  collected  for  the  first  time  an  ad  valorem  land  tax 
for  the  benefit  of  the  provincial  and  municipal  governments.  The 
provincial  board  is  required  to  levy  one-eighth  of  1  per  cent  on  the 
assessable  land  of  the  province  for  roads  and  bridges  and  may  levy 
two-eighths  more  for  general  purposes.  The  municipal  council  is 
required  to  levy  one-fourth  of  1  per  cent  for  schools  and  may  levj^ 
one-fourth  of  1  per  cent  more  for  general  purposes.  We  have  not 
sufficient  data  at  hand  to  say  how  much  revenue  these  sources  are  likely 
to  afi'ord,  but  so  far  as  we  have  been  able  to  judge  we  think  the  prov- 
inces and  towns  will  be  self-supporting.  If  a  deficiency^  should  arise, 
it  can  be  met  by  an  increase  of  the  land  tax,  which  as  at  present  pro- 
vided is  very  small. 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  151 

We  have  made  an  advance  to  each  province  of  $2,500  gold,  to  be 
repaid  Januarj-  1,  1903.  As  the  governments  all  began  without  any 
money  whatever,  this  seemed  necessary  to  give  them  a  start,  though 
several  provinces  have  declined  the  loan.  No  complaint  has  been 
made  to  the  commission  from  any  province  that  it  is  running  behind. 
In  Ambos  Camarines,  Capiz,  and  Iloilo  danger  of  suilering  from 
starvation  was  reported  to  be  imminent  because  of  the  death  of  the 
carabaos.  Accordingh%  we  have  authorized  each  of  those  provinces 
to  borrow  from  the  insular  treasury  $25,000  gold  to  build  needed  roads 
in  the  vicinity  of  towns  where  suffering  was  greatest,  so  as  to  furnish 
money  to  the  people,  the  mone}'  to  be  paid  back  in  five  annual  install- 
ments, beginning  in  two  years.  . 

The  provincial  board  of  Iloilo  has  since  advised  the  commission  that 
it  will  not  borrow  the  mone}^,  for  the  reason  that  its  revenues  are  large 
enough  to  do  the  work  without  it.  The  other  two  provinces  have 
drawn  the  money. 

THE   LABOR  PROBLEM. 

The  commission  is  not  prepared  to  make  recommendations  in  regard 
to  the  admission  of  Chinese  as  laborers.  It  is  very  difficult  to  secure 
good  labor  in  the  islands,  especiall}^  skilled  labor.  Labor  such  as  is 
secured  is  irregular,  poor,  and  much  more  expensive  for  work  done 
than  in  the  United  States.  There  is  not  the  slightest  danger  of  pau- 
per competition  in  these  islands  with  the  laborers  of  the  United  States. 
How  much  of  the  difficulty  is  due  to  unsettled  conditions  and  how 
much  is  inherent  in  the  race  we  can  not  say;  but  we  think  the  tran- 
quilizing  of  the  provinces  will  certainl}^  make  labor  better  and  easier 
to  get,  though  it  will  long  be  unsatisfactory  when  measured  by  Amer- 
ican standards.  Throughout  the  archipelago  wages  have  doubled  and 
in  many  cases  trebled  since  1898.  In  too  many  instances  the  imme- 
diate result  of  doubling  the  wage  is  to  induce  the  laborer  to  work  iust 
half  as  many  days. 

THE    COMMISSARY. 

Upon  September  1,  1901,  the  privilege  of  buying  supplies  from  the 
army  commissary  was  withdrawn  from  civilians.  While  this  greatly 
increased  the  cost  of  living  of  American  civilians  in  Manila,  it  was  a 
wise  step,  for  civilian  use  of  the  commissary  had  interfered  with 
legitimate  trade  and  delayed  the  opening  of  grocery,  meat,  and  other 
supply  shops.  In  the  country,  however,  the  case  is  different  for 
American  employees  of  the  civil  government.  There  necessar}^  sup- 
plies for  the  living  of  an  American  can  not  be  obtained  at  all,  and  we 
could  not  hope  to  keep  American  provincial  officers,  school  teachers, 
post-office  employees,  customs  men,  constabularj''  inspectors,  and 
others  in  the  provinces,  many  with  their  families,  unless  the}"  could 


152  REPORTS    OF    THK    CIVIL    (JDVP^KNMKNT 

obtain  tho  necossurios  of  life.  Wo  have  tlioroforo  ostablished,  through 
the  Phili})piiio  oonstabuliiry,  a  civil  coniinissary  for  the  pi'ovinccs, 
througli  which  we  expect  to  furnish  certain  staple  supplies  which  will 
enal)le  our  emploj'^ees  in  the  provinces  to  eat  American  food,  supple- 
mented ])v  the  fruit  and  tish  of  the  country. 

TARIFF   RELATIONS   WITH    THE    UNITED   STATES. 

The  new  tariff,  to  wdiich  more  detailed  reference  will  be  made  here- 
after, will  go  into  effect  on  the  15th  of  November,  and  it  is  hoped  that 
it  will  cause  a  great  reduction  in  the  cost  of  living  in  the  islands. 
The  tax  on  necessities  for  living  and  for  improving  and  developing 
the  resources  of  the  islands  has  been  reduced  below  25  per  centum  ad 
valorem.  Many  American  products  heretofore  excluded  by  a  pro- 
hibitory tariff'  will  now  come  in,  and  the  food  of  the  people  will  be 
reduced  in  cost  and  gradually  increased  in  variety.  If  Congress  will 
reduce  by  50  per  cent  the  United  States  dut}^  on  tobacco,  hemp,  and 
sugar  and  other  merchandise  coming  from  these  islands,  it  is  certain 
that  the  ti-ade  between  them  and  the  United  States  under  the  new 
tariff'  will  increase  by  leaps  and  bounds.  Such  generosity  would  much 
strengthen  the  bonds  between  the  Filipino  and  American  people,  and 
it  is  earnestly  recommended. 

THE    CITY    OF   MANILA. 

On  the  7th  of  August  the  charter  of  Manila  went  into  effect  and  the 
provost-marshal-general  turned  over  the  cit}^  government  to  the  munic- 
ipal l)oard  of  three  members  appointed  under  the  charter  b}^  the  civil 
governor  with  the  consent  of  the  commission.  The  charter  follows 
closely  in  its  general  lines  the  plan  of  the  legislation  by  which  the 
city  of  Washington  is  governed.  In  its  preparation  we  were  greatly 
assisted  by  a  draft  of  a  charter  made  by  Brig.  Gen.  George  W.  Davis, 
the  last  provost-marshal-general  of  Manila.  The  new  charter  was 
adopted  only  after  a  full  pul)lic  discussion.  Instead  of  requiring  the 
insular  government  to  pay  one-half  of  the  expenses  of  the  city — the 
proportion  paid  for  Washington  by  the  Federal  Government — the  pro- 
portion is  reduced  to  three-tenths. 

It  was  not  thought  wise  to  leave  the  control  of  the  city  government 
to  popular  selection.  The  population  of  Manila  is  of  a  most  miscel- 
laneous character.  There  are  00,000  Chinese,  perhaps  7,500  Ameri- 
cans, as  many  more  Spaniards  and  other  Europeans,  and  of  Filipinos 
of  all  tribes  and  languages  175,000.  The  criminal  and  turbulent 
classes  are  well  represented  in  Manila.  The  municipal  problems  pre- 
sented in  the  necessity  for  doubling  the  water  supply,  for  constructing 
a  sewerage  system,  for  dealing  with  the  noisome  moat  surrounding 
the  walled  city,  for  filling  up  part  of  the  small  creeks  or  esteros  that 
now  intersect  the  cit}^  and  are  but  open  sewers,  and  for  dredging  out 


OF    THE    PHlLIi'PINP]    ISLANDS,    1900-1903.  153 

and  walling  the  banks  of  others  useful  for  navigation  are  .so  full  of 
difficulty  that  they  need  the  best  men  that  can  be  found  to  solve  them, 
and  popular  election  would  not  have  resulted  in  furnishing  good  ma- 
terial. The  charter  has  not  been  long  enough  in  operation  to  justify 
an  opinion  as  to  its  sufficiency.  The  city  of  Manila  has  no  debt,  but 
it  has  many  expensive  requirements,  and  until  a  debt  is  created  these 
requirements  can  not  be  met.  We  think  that  it  may  be  necessar}^  to 
issue  bonds  to  an  amount  not  exceeding  $4,000,000  with  which  to 
double  the  water  supply  and  to  institute  a  sewer  system.  General 
Davis,  the  able  provost-marshal-general,  made  so  complete  and  elabo- 
rate a  report  on  the  cit}"  of  Manila,  which  is  included  in  General 
MacArthur's  report,  that  it  is  unnecessary  for  us  to  attempt  an  addi- 
tion to  it  after  only  two  months'  experience  in  civil  government  of  the 
city.  A  reference  to  the  income  and  expenditures  of  the  city  will 
hereafter  be  made. 

There  is  no  city  in  the  world  which  is  so  much  in  need  of  electric 
railways  as  the  city  of  Manila.  The  cab  system  is  most  defective,  and 
it  is  necessary  for  tli.e  government  to  maintain  a  large  number  of  gov- 
ernment cabs  for  the  use  of  the  public  offices  during  business  hours. 
A  stringent  law  has  been  passed  forbidding  the  use  of  such  convey- 
ances after  hours  or  for  the  purpose  of  conveying  employees  from  their 
homes  to  their  ofiices.  If  we  had  an  adequate  sj'stem  of  street  rail- 
ways there  would  be  no  need  of  maintaining  such  an  establishment  as 
the  government  must  now  maintain.  Of  far  greater  importance,  how- 
ever, is  the  inconvenience  to  the  public  arising  from  a  lack  of  proper 
street  transportation.  There  is  one  street  railwaj^  company,  whose 
right  to  use  electricit}^  or  anj^thing  but  horsepower  is  in  doubt,  and 
whose  line  is  divided  into  seven  different  divisions,  over  each  of  which 
it  is  permitted  to  charge  a  regular  fare.  The  line  is  very  poorh^  con- 
ducted and  affords  little  if  any  accommodation.  The  reasons  for  con- 
ferring upon  some  authority  the  power  to  grant  franchises  in  this 
country  are  manifold,  but  there  is  no  better  illustration  of  the  over- 
whelming necessity  for  such  a  power  than  is  shown  in  the  case  of  street- 
railway  facilities  in  Manila. 

It  is  earnestly  recommended  that  Congress  confer  upon  the  commis- 
sion, with  such  restrictions  as  may  seem  wise,  including  the  necessity 
for  confirmation  b}'  the  Secretary  of  War  or  the  President,  the  right 
to  grant  franchises  of  this  kind  in  the  towns  and  cities  of  the 
archipelago. 

PUBLIC   LANDS. 

In  the  development  of  these  islands  it  is  essential  that  opportunity 
shall  be  afforded  for  the  sale  and  settlement  of  the  enormous  tracts  of 
public  lands.  The  system  of  public-land  surveys  provided  by  the 
statutes  of  the  United  Stales  might  well  be  carried  out  here,  though, 


154  KEPOKTS    OF    THK    CIVIL    (U)VKKNMENT 

of  course,  it  would  be  3^ear.s  before  the}'  could  be  couipleted.  Mean- 
time, provision  should  be  made  for  homestead  disposition  and  pul)lic 
auction  sale  of  the  lands,  with  a  provision  for  a  ])r(^liniinarv  survey  at 
the  expense  of  the  applicant,  the  land  ol)tained  to  ])e  held  subject  to  a 
reconformation  on  the  completion  of  the  official  survey.  Homestead 
sentries,   of  course,  should  be  for  limited  amounts;  but  in  order  to 

/encourage  iuvestments  of  capitaljmd  the  introduction  of  modern  meth- 
ods of  agriculture,  we  think  public  auction  sales  of  comparatively 
large  tracts  should  be  authorized  upon  proper  conditions  and  at  not 
less  than  lixed  mininuun  prices.  The  islands  of  Mindanao,  Paragua, 
and  Mindoro  are  almost  wholly  undeveloped,  and  will  remain  so  until 

X'apitalists   are  offered  an   inducement  to  go   there  and  make  large 

jjjvestments. 

Persons  in  possession  of  land  and  actually  cultivating  the  same  for 
a  number  of  years  ought  to  be  given  an  opportunity  to  perfect  their 
titles.  The  difficulties  likely  to  attend  the  disposition  of  the  public 
domain  in  these  islands  are  set  forth  in  a  paper  prepared  by  our  com- 
missioner of  public  lands,  Mr.  William  M.  Tipton.  He  has  been  in 
the  Philippines  onl}^  about  two  months,  but  he  has  had  eighteen  years' 
experience  in  the  office  of  the  surveyor-general  of  public  lands  in  New 
Mexico,  and  some  eight  or  nine  years'  experience  as  an  assistant  in 
the  office  of  the  United  States  attorney  in  the  Court  of  Private 
Land  Claims.  He  shows  clearly  the  necessit}^  for  the  establishment 
of  a  court  of  private  land  claims  here,  for  conditions  are  not  very  dif- 
ferent from  those  obtaining  in  New  Mexico.  In  another  paper  he 
states,  in  a  summary  way,  the  provisions  by  law  for  the  alienation  and 
acquisition  of  public  lands  under  the  Spanish  dominion  in  the  Philip- 
pines.    The  two  papers  are  attached  hereto  as  Appendices  F  and  G. 

We  recommend  that  the  commission  be  authorized  to  enact  a  public- 
land  law,  with  such  limitations  as  to  quantities,  prices,  and  conditions 
of  x)urchase  as  to  Congress  ma}^  seem  wise.  In  the  last  years  of  Span- 
ish rule  provision  was  made  by  law  for  turning  over  to  each  pueblo  a 
common  from  the  public  lands.  It  is  understood  that  no  such  com- 
mons have  been  surveyed  or  taken  possession  of;  but  at  several  places 
in  our  provincial  journeys  questions  were  asked  as  to  whether  the 
American  Government  intended  to  fulfill  the  Spanish  promise  in  this 
regard.  In  any  general  authority  conferred  upon  the  commission  in 
regard  to  disposition  of  public  lands,  it  is  suggested  that  power  be 
given  to  grant  commons  to  each  town  from  the  puplic  domain. 

MUNICIPAL   GOVERNMENTS. 

The  municipal  code  was  enacted  on  January  21,  1901.  It  had  been 
the  plan  of  the  commission  to  organize  the  municipalities  of  the  sev- 
eral provinces  and  then  proceed  in  each  case  to  the  establishment  of  a 
provincial  government;  but  conditions  were  improving  so  rapidl}^  at 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  155 

the  tiuio  the  code  was  enacted  and  the  demand  for  civil  provincial  gov- 
ernments was  so  strong  that  it  proved  necessary  to  abandon  this  plan. 
The  policy  adopted  in  most  instances  was  to  establish  a  provincial 
government  and  appoint  one  of  the  provincial  officers,  usually  the 
governor,  chairman  of  organization  committees  for  the  several  munici- 
palities, so  that  the  work  might  proceed  as  rapidly  as  possible.  In 
some  few  instances  persons  other  than  provincial  officers  were  selected 
on  account  of  their  special  fitness  for  the  work. 

The  municipal  code  had  been  widely  scattered  through  the  islands 
before  the  commission  started  on  its  southern  trip.  It  had  been  care- 
full}'  studied  by  the  leading  men  of  many  of  the  municipalities,  and 
its  provisions  were  freely  discussed  with  them  in  the  meetings  held  at 
provincial  capitals.  In  this  way  a  number  of  useful,  practical  sugges- 
tions were  obtained,  which  were  subsequently  embodied  in  act  No.  132, 
amending  the  code. 

Practical  experience  has  developed  some  other  minor  defects,  which 
will  be  corrected  by  further  amendments  in  the  near  future.  Six  hun- 
dred and  sixteen  towns  have  thus  far  been  reported  as  organized  under 
this  law,  with  the  provinces  of  Bataan,  Bohol,  Capiz,  Cebu,  Isabela, 
and  Surigao  yet  to  be  heard  from.  In  actual  practice  the  law  has 
worked  to  the  satisfaction  of  the  people  and  of  the  commission. 

Tliere  have  been  individual  instances  of  misconduct  on  the  part  of 
municipal  officers,  which  have  been  promptly  punished  by  suspension 
or  removal  from  office.  Violation  of  the  oath  of  allegiance  has  not  yet 
been  proved  against  a  single  president.  The  shortcomings  of  munici- 
pal officers  are  chiefly  survivals  of  the  old  system,  known  as  "caci- 
quismo,"  and  manifest  themselves  in  a  tendency  on  the  part  of  the 
municipal  officers,  and  especially  of  presidents,  to  exercise  arbitrary 
powers  which  have  not  been  conferred  upon  them  by  law.  The  igno- 
rance of  the  common  people  is,  in  man}'  instances,  so  great  as  to  make 
such  abuse  of  power  easy.  Little  by  little,  however,  they  are  coming 
to  understand  their  rights  under  the  law  and  to  demand  them.  In 
order  to  expedite  this  much-to-be-desired  change,  a  very  large  number 
of  copies  of  the  code  have  been  printed  in  Spanish  and  distributed 
throughout  the  archipelago,  and  the  Tagalog  provinces  have  also  been 
supjjlied  with  copies  in  the  Tagalog  language,  while  Visayan,  Bicol, 
and  Ilocano  translations  are  in  preparation. 

Few  complaints  have  T)een  received  from  towns  thus  far  organized 
of  inability  to  maintain  themselves,  while  in  some  cases  considerable 
balances  are  on  hand  in  municipal  treasuries.  This,  too,  before  the 
land  tax  has  gone  into  effect  and  at  a  time  when  the  ravages  of  war,  of 
rinderpest,  and  of  locusts  have  produced  unusual  poverty  in  many 
provinces. 

These  encouraging  results  lead  us  to  believe  that  when  the  system 
of  taxation  provided  by  the  code  has  been  put  into  full  effect  and 


15(>  REPORTS    0¥    THE    CIVIL    GOVERNMENT 

coiuliticMis  liiivo  :ioaiM  Ihh'Oiiio  normal  the  municipalities  will  ])e  able 
not  (Mily  to  meet  their  necessary  current  expenses,  but  to  make  impor- 
tant and  nuich-needed  municipal  improvements. 

An  attempt  has  been  made  to  ascertain  the  proportion  of  qualiiied 
electors  to  inhabitants  in  the  towns  thus  fiar  organized.  Difficulties  of 
connnunication  have  rendered  this  effort  only  partially  successful. 
Returns  have  been  received  from  390  municipalities,  showing  a  total 
population  of  2,695,801  and  a  total  of  49,523  qualified  electors,  or 
18.37  electors  per  1,000  inhabitants.  Any  person  who  is  able  to  read 
and  write  the  English  or  Spanish  language  is  eligible  to  vote,  as  already 
stated;  and  when  it  is  remembered  that  this  total  of  electors  includes 
not  only  such  persons,  but  also  those  who  own  property  to  the  value 
of  $250  in  American  currency  or  who  pay  annually  taxes  to  the 
amount  of  $15,  and  also  all  those  persons  who  held  municipal  office 
under  the  Spanish  regime,  some  light  is  gained  as  to  the  educational 
attainments  of  the  common  people. 

It  was  to  be  expected  that  the  intrusting  to  municipal  councils  of 
powers  which  were  entirely  new  to  them  v/ould  lead  in  some  instances 
to  their  exceeding  their  authority.  This  has  been  the  case.  For 
instance,  municipal  councils  have  attempted  to  fix  by  ordinance  the 
fees  which  native  and  other  priests  should  be  allowed  to  charge  for 
baptism,  marriage,  and  burial  ceremonies.  At  the  quarterly  gather- 
ings of  municipal  presidents  in  some  of  the  provinces  attempts  have 
even  been  made  to  legislate  as  to  public  lands  and  the  exploitation  of 
the  forest  products  grown  thereon,  but  no  serious  harm  has  resulted 
from  these  minor  failures  of  municipal  presidents  and  councils  to  real- 
ize the  limitations  imposed  upon  their  authority  by  law. 

On  the  whole,  it  may  safely  be  said  that  the  people  have  received 
the  municipal  code  in  a  most  friendly  spirit,  have  taken  a  commend- 
able interest  in  its  provisions,  and  in  the  majority  of  cases  have 
attempted  in  good  faith  to  carry  them  out. 

Numerous  petitions  have  been  received  for  authorization  to  create 
new  municipalities.  A  pueblo  under  the  Spanish  regime  corresponded 
rather  to  a  township  or  a  county  than  to  a  "town,"  in  the  ordinary 
acceptation  of  that  term.  It  often  embraced  an  area  of  many  square 
miles,  through  which  were  scattered  small  villages,  known  as  "  barrios." 
Two  factors  have  apparently  been  potent  in  bringing  about  these  appli- 
cations for  the  formation  of  new  towns.  One  has  been  the  inconven- 
ience of  keeping  up  communication  between  remote  barrios  and  their 
centers  of  municipal  government;  the  other  has  been  the  desire  on  the 
part  of  leading  men  of  the  barrios  concerned  to  hold  municipal  office. 
While  there  are  doubtless  cases  in  which  new  municipalities  might 
advantageously  be  formed  by  the  segregation  of  certain  barrios,  the 
conmiission  has  thought  it  best  to  delay  action  in  nearly  all  such  cases 
for  the  period  of  one  year,  in  order  that  time  might  be  atiorded  for 


OF   THE    PHILIPPINE    ISLANDS,   1900-1903.  157 

familiarizing  ourselves  thoroughly  with  the  facts  and  that  returning 
prosperity  might  make  the  people  concerned  better  able  to  bear  the 
increased  expenses  which  would  result  from  such  reorganization. 

A  different  class  of  cases  has  been  presented  by  the  proximity  of 
certain  municipalities  to  others,  which  not  infrequently  makes  the 
union  of  two  or  more  municipalities  highly  to  be  desired  from  an 
economical  standpoint.  In  one  instance  it  was  found  practicable  to 
unite  five  municipalities  in  this  way,  and  in  several  cases  municipalities 
which  were  too  small  to  maintain  a  separate  existence  have  been  incor- 
porated with  larger  ones  as  barrios.  Such  changes,  when  proposed, 
have,  however,  usually  proved  unpopular.  It  has  been  found  that 
civic  pride  often  runs  high  in  the  smallest  and  most  poverty-stricken 
places.  The  fact  that  a  given  municipality  has  had  an  uninterrupted 
existence  as  a  "  pueblo  "  for  a  century  or  two  is,  to  its  people,  a  suffi- 
cient reason  whj^  it  should  continue  to  exist  independently.  We  regard 
this  local  pride  as,  in  itself,  most  commendable  and  wherever  practi- 
cable have  avoided  wounding  it.  With  a  single  exception,  union  of 
municipalities  has  been  effected  only  when  the  people  concerned  favored 
the  change,  or  when  it  was  evident  to  everyone  that  it  was  absolutely 
necessary  for  economic  reasons. 

The  one  exception  to  this  rule  was  in  the  case  of  San  Nicolas,  which 
was  separated  from  the  city  of  Cebu  only  by  a  small  stream.  This 
municipalit}^  had  been  a  hotbed  of  insurrection  and  crime,  and  it  was 
therefore  felt  that  the  preference  of  the  people  ought  not  to  stand  in 
the  way  of  a  change  demanded  in  the  interest  of  econoni}^  and  efficient 
administration. 

THE    BENGUET   GOVERNMENT. 

The  special  provincial  and  municipal  government  acts  adopted  for 
Benguet,  which  is  peopled  almost  exclusively  b}^  non-Christian  Igor- 
rotes,  were  fully  described  in  the  last  report  of  the  commission.  No 
further  legislation  has  as  yet  been  enacted  for  non-Christian  tribes,  it 
having  been  deemed  wise  to  await  the  results  of  the  Benguet  experi- 
ment before  going  further.  With  a  view  to  ascertaining  from  per- 
sonal observation  how  the  Benguet  laws  were  actually  working,  and  to 
determine  the  pructicabilit}'  of  applying  them,  or  something  like  them, 
to  Lepanto,  Coninii.ssioncrs  Worcester  and  Moses  visited  these  prov- 
inces in  June,  going  first  to  Baguio,  the  capital  of  Benguet,  and  then 
riding  northward  through  the  settlements  known  as  Trinidad,  Ambu- 
klao,  Daklan,  Adaoay,  Kalniyan,  Bugias,  and  Loo,  entering  Lepanto 
at  Mancayan  and  leaving  by  the  Tilad  Pass. 

In  each   of  the   several    Benguet  settlements  visited  after  leaving 

Trinidad  the  hefwimen  were  called  togetluu-  and  a  frank  discussion  was 

had  with  them  as  to  the  practical  workings  of  the  nunricipal  act  under 

which  they  are  organized.     The  conclusion  was  reached  that  the  meas- 

23181—04 11 


158  REPORTS    OV    THE    CIVIL    OOVP^KNMENT 

lire  is  well  adapted  t(i  their  needs  and  is  producino-  a  slow,  but  none 
the  less  sure,  improvement  in  their  condition.  While  the  ordinary 
loorrote  contents  himself  with  a  clout  when  at  work  and  adds  a  cotton 
blanket  during-  his  leisure  moments,  only  to  keep  himself  warm,  the 
municipal  officials  in  the  settlements  visited  had  been  led,  apparently 
by  the  dignit}'  of  their  positions,  to  secure  and  wear  the  garb  of  civil- 
ization. Some  of  the  presidents  had  developed  a  considerable  amount 
of  efficiency  as  administrators.  There  had  been  a  tendency  on  the 
part  of  man}"  of  the  people  to  make  untrue  declarations  in  regard  to 
their  property  in  order  to  escape  taxation,  a  tendency  which  was 
being  gradually  overcome  as  the}"  came  to  learn  by  actual  experience 
that  all  the  money  collected  in  any  settlement  was,  under  the  law, 
spent  for  the  good  of  its  l-esidents. 

It  is  needless  to  say  that  some  very  remarkable  local  ordinances  have 
been  passed  by  municipal  councils  in  Igorrote  settlements;  but  the 
provision  that  all  such  ordinances  should  be  submitted  to  the  provin- 
cial governor  for  approval  before  going  into  effect,  and  in  case  they 
were  deemed  defective  should  be  returned  by  him  to  the  council 
enacting  them,  with  his  suggestions  as  to  desirable  changes,  has  pre- 
vented any  harm  and  has  helped  to  educate  the  people  as  to  the  form 
which  such  measures  should  take.  In  some  cases  the  provincial  gov- 
ernor has  purposely  allowed  defective  ordinances  to  become  operative 
in  order  that  those  who  enacted  them  might  learn  wisdom  by 
experience. 

A  less  encouraging  account  must  be  given  of  the  practical  working 
of  the  Benguet  provincial  government.  It  was  the  first  provincial 
government  to  be  established  and  its  officials  met  with  numerous  and 
serious  obstacles,  not  the  least  of  which  was  their  isolation,  which  ren- 
dered communication  difficult,  and  sometimes  resulted  in  their  being 
left  without  necessary  funds.  Such  seemingly  simple  matters  as  the 
organization  of  an  office  force  and  the  securing  of  office  supplies 
involved  weeks  of  delay.  In  spite  of  obstacles  and  discouragements 
Governor  Whitmarsh  has  begun  the  construction  of  provincial  build- 
ings, and  has  organized  and  carried  out  a  successful  expedition  against 
the  Busol  head-hunters  of  northern  Benguet  and  southern  Lepanto. 

The  chief  obstacle  in  the  way  of  further  progress  has  been  the  per- 
sonal differences  which  arose  between  the  provincial  governor  and 
the  provincial  secretary,  which  were  intensified  by  isolation  from  the 
outside  world,  and  culminated  in  the  resignation  of  both  officials.  The 
resignation  of  the  provincial  secretary  has  been  accepted,  and  that  of 
the  provincial  governor  is  being  held  until  a  suitable  person  can  be 
found  to  take  his  place.  While  the  lack  of  greater  progress  in  Benguet 
has  been  due  to  the  want  of  harmony  between  provincial  officials 
rather  than  to  the  character  of  the  act  under  which  the  province  is 
organized,  it  is  believed  that  this  act  may  now  profitably  be  amended 


OF   THE    PHILIPPINE    ISLANDS,   1900-1903.  159 

in  such  a  way  that  its  provisions  will  harmonize  more  fully  than  at 
present  with  those  of  the  general  provincial  act,  which  has  been  put  in 
force  in  the  pacified  provinces  inhabited  by  civilized  natives. 

It  was  ascertained  that  conditions  in  Lepanto  were  so  similar  to  those 
prevailing"  in  Benguet  that  little  modification  in  the  Benguet  laws  was 
needed.  Commissioners  Worcester  and  Moses  found  representatives 
from  every  Lepanto  settlement  gathered  at  the  capital,  Cervantes,  to 
meet  them.  The  assembly  was  so  large  that  no  building  in  the  place 
would  hold  it,  and  a  public  session  was  accordingly  called  in  a  shaded 
street.  Half  a  day  was  spent  in  a  detailed  explanation  of  the  form  of 
local  civil  government  which  had  been  given  to  the  Benguet  Igorrotes, 
and  the  Lepanto  Igorrotes  said  that  they  were  well  satisfied  with  the 
laws  described,  and  desired  to  have  the  benefit  of  similar  laws  at  the 
earliest  practicable  time. 

It  was  then  hoped  that  civil  government  might  soon  be  established 
in  Lepanto,  but  the  more  important  work  of  organizing  provinces 
inhabited  by  civilized  natives  necessarily  took  precedence.  This  work 
having  been  practically  completed,  it  will  now  soon  be  possible  to 
proceed  to  the  organization  of  the  few  remaining  provinces  of  Luzon, 
which  are  peopled  entirely  or  largely  by  non-Christian  tribes. 

NON-CHRISTIAN   TRIBES. 

There  is  at  present  a  lamentable  lack  of  accurate  information  as  to 
the  non-Christian  tribes  of  the  Philippine  Islands.  Although  the 
Commission  has  thus  far  been  able  to  give  but  slight  attention  to  the 
interests  of  this  part  of  the  population,  enough  work  has  been  done  to 
show  that  a  number  of  tribes  included  in  the  most  reliable  lists  thus 
far  published  have  no  existence  in  fact,  on  the  one  hand,  and  that 
tribes  exist  which  have  never  been  included  in  any  list,  on  the  other. 
Similarly,  it  has  been  proved  that  wild  tribes  are  absent  in  several 
provinces  where  they  have  been  stated  to  exist,  and  that  they  exist  in 
some  provinces — as,  for  instance,  Samar — which  have  been  popularly 
supposed  to  be  inhabited  only  by  Christianized  natives. 

It  can  be  stated  with  certainty  that  non-Christian  tribes  exist  in  the 
provinces  of  Cagayan,  North  Ilocos,  South  Ilocos,  Union,  Pangasinan, 
Tarlac,  Nucva  Ecija,  Zambales,  Bataan,  Pampanga,  Bulacan,  Tayabas, 
Ambos  Camarines,  Romblon,  Capiz,  Anticjue,  Iloilo,  Western  Negros, 
Eastern  Negros,  Samar,  Surigao,  and  Misamis,  although  there  is  a 
hcav}^  predominance  of  Christianized  natives  in  each  of  these  provinces. 
In  Isabcla  and  Abra,  on  the  other  hand,  the  non-Christian  tribes  are 
numerous  and  important,  while  in  Bontoc,  Lepanto,  Nueva  Viz(;aya, 
Benguet,  Principe,  Infanta,  Mindoro,  theCalamianes  Islands,  Palawan, 
Balabac,  the  Sulu  Archipelago,  and  the  districts  of  Zamboanga,  Cota- 
bato,  and  Davao,  in  Mindanao,  the}'  constitute  the  bulk  of  the  popula- 
tion.    The  total  non-Christian  population  may  be  roughly  estimated 


I(i0  UKroKTS    <»F    THK    (^IVIL    OOVKUNMKNT 

at  2,000,000,  although  it  slunild  hcclciirly  undci'stood  tliiit  any  attempt 
to  make  a  statement  as  to  its  nmn})ers  is  at  ]iresent  to  a  vci-y  large 
extent  guesswork.  Many  of  the  tribes  are  nuinerit-ally  insignificant. 
Not  a  few  arc  quite  numerous  and  powerful.  Some  of  them,  like  the 
Negritos,  are  physical  and  mental  weaklings,  while  others,  like  the 
Igorrotes  of  Bontoc,  display  a  superb  physical  development  and  show 
mental  and  moral  qualities  such  as  to  lend  weight  to  the  opinion  of  the 
Filipino  patriot,  Jose  Rizal,  who  said:  "The  future  of  the  Philippine 
Islands  is  in  the  people  of  their  mountains." 

The  Moro  tribes  of  southern  Mindanao,  the  Sulu  Archipelago,  Bala- 
bac,  and  southern  Palawan  are  the  only  ones  among  these  non-Chris- 
tian peoples  which  could  ali'ord  any  serious  menace  to  public  order  or 
to  the  peace  of  any  important  portion  of  the  archipelago.  Thanks  to 
the  good  judgment  of  the  military  officers  in  those  regions,  the  friend- 
liest relations  have  thus  far  been  maintained  with  the  Moros  of  the 
Sulu  Archipelago  and  of  the  districts  of  Zamboanga,  Cotabato,  and 
Davao.  The  Moros  of  the  Lake  Lanao  region  have  long  been  reputed 
the  fiercest  and  most  urcompromising  members  of  their  tribe.  The 
Spanish  Government  spent  several  years  in  an  unavailing  attempt  to 
subdue  them.  They  were  at  first  very  suspicious  of  Americans;  but 
markets  have  been  established  for  them  at  Iligan,  on  the  north  coast, 
and  at  Tucuran,  on  the  south  coast,  and  they  are  now  coming  down  to 
the  sea  on  market  daj^s  in  constantl}^  increasing  numbers,  which  indi- 
cates greater  confidence  in  and  l^etter  feeling  toward  the  Americans. 
While  injudicious  conduct  might  readily  precipitate  a  fierce  conflict 
with  these  people,  it  is  hoped  that  no  such  untoward  event  may  occur 
anywhere  in  the  Moro  country. 

With  the  exception  of  Misamis,  there  are  no  Moros  in  any  province 
where  civil  government  has  been  established.  An  act  has  been  passed 
forbidding-  prospectors  to  visit  that  portion  of  Misamis  which  they 
inhabit  without  the  written  permission  of  the  military  commander  of 
the  Department  of  Mindanao  and  Jolo.  The  same  act  prohibits  the 
sale  of  intoxicating  beverages  in  the  one  town  which  they  frequent. 

The  problems  presented  by  these  non-Christian  peoples  are  neither 
few  nor  insignificant.  Some  of  them,  like  the  Tinguianes  in  A})ra, 
are  possessed  of  a  vevy  considerable  degree  of  civilization,  while  others, 
like  the  Negritos  of  Bataan,  have  been  definitely  proved  incapable  of 
any  considerable  advancement.  The  Moros  have  a  fairly  well  organized 
governmental  system,  but  no  other  one  of  the  numerous  non-Christian 
peoples  has  a  tribal  government,  while  in  not  a  few  cases  the  family 
is  the  only  recognized  social  unit,  and  even  the  family  tie  is  loose. 

Certain  of  the  non-Christian  tribes  have  highly  ol)jectionable  cus- 
toms. The  question  of  how  best  to  deal  with  slaver}'  among  the  Moros 
has  attracted  wide  attention  in  the  United  States.  On  its  southern 
trip  the  commission  met  and  had  long  interviews  with  the  Sultan  of 


•      OF   THE    PHILIPPINE    ISLANDS,   1900-1903.  IGl 

Sulu  and  the  principal  datos  of  the  Sulu  Archipelago,  as  well  as  with 
Dato  Mandij,  who  rules  the  Moros  in  the  Zamboanga  district,  and 
Dato  Piang,  Dato  Utto,  and  other  leading  datos  of  the  districts  of 
Cotabato  and  Davao.  In  the  course  of  these  interviews  the  slaver}^ 
question  was  discussed  ver}"  frankl3%  The  insular  government  has 
never  recognized  slavery  in  an}^  wa}',  and  the  Moros  were  informed 
that  it  never  would  do  so.  The}"  showed  little  hesitation  in  giving  us 
the  details  of  the  system  as  it  exists,  and  their  statements  were  con- 
firmed by  military  officers  in  command  of  garrisons  at  the  several 
points  visited. 

We  learned  that  slavery  is  widespread  among  the  Moros,  but  at  the 
present  time  exists  in  an  extremely  mild  form.  The  old  slave-hunting 
expeditions  have  nearly  ceased.  The  Moro  datos  claim  that  thej'  no 
longer  occur  at  all,  but  it  is  known  that  this  statement  is  not  strictly 
true,  as  the  Moros  of  Mindanao  still  occasionally  capture  members  of 
wild  tribes  in  the  interior  of  that  island.  The  Filipinos  f  ormerh' held 
as  slaves  have  practical!}"  all  been  liberated  by  our  troops,  although  it 
is  possible  that  a  few  may  still  remain  in  bondage  in  the  Lake  Lanao 
region.  Slaves  who  desire  their  freedom  and  who  seek  protection  at 
an}"  military  garrison  receive  it. 

The  large  majority  of  slaves  held  to-day  have  sold  themselves  for 
debt  or  are  the  chiklren  of  those  who  have  so  sold  themselves,  the 
obligations  of  parents  being  inherited  by  their  ofispring.  A  slave 
may  secure  his  liberty  by  paying  to  his  owner  an  amount  equal  to  the 
price  paid  for  him,  but  should  he  sell  himself  for  a  certain  sum  and 
should  his  master  afterwards  be  able  to  sell  him  for  a  larger  sum  he 
must  repay  this  latter  amount.  In  the  majority  of  cases  slaves  are 
treated  kindly,  and  they  are  frequently  allowed  time  and  opportunity 
to  earn  money,  so  that  it  is  possible  for  them  to  redeem  themselves  if 
they  desire  to  do  so.  The  casual  observer  finds  it  impossible  to  distin- 
guish them  from  members  of  the  family  to  which  they  belong.  Mili- 
tary ofiicers  everywhere  expressed  the  opinion  that  Moro  slaves  were, 
on  the  whole,  so  well  satisfied  with  their  lot  that  if  they  were  all  set 
free  the  majority  of  them  would  pi-omptly  return  to  their  old  masters 
and  voluntarily  take  up  their  old  life  again.  This  statement  is  not 
advanced  as  a  defense  of  the  system  of  slavery  which  prevails  among 
the  Moros,  but  rather  as  an  illusti-ation  of  the  difficulties  to  be 
encountered  in  abolishing  it. 

An  attempt  at  the  present  time  to  use  force  in  securing  the  liberty 
of  Moro  slaves  would  inevital)ly  provoke  a  fierce  conflict  with  a  brave 
and  warlike  people,  and,  so  far  as  the  slaves  themselves  are  (concerned, 
would  meet  with  little  appreciation.  If,  on  the  other  hand,  the  refusal 
on  the  part  of  the  Government  to  recognize  slavery  is  persisted  in, 
and  the  taking  or  acquiring  of  new  slaves  is  prevented,  the  question 
will  settle  itself  in  a  generation  without  bloodshed  or  the  bitterness 
necessarily  engendered  by  an  armed  strife. 


1G2  REPORTS    OF   THE    CIVIL    GOVERNMENT 

It  should  be  understood  that  slavery  in  the  Philippines  is  by  no 
means  conlined  to  the  Moros.  It  is  common  among  the  wild  Indone- 
sian tribes  in  the  interior  of  Mindanao  and  among-  the  wild  Malayan 
tribes  of  northern  Luzon.  If  the  evidence  of  credible  witnesses  may 
be  believed,  some  of  the  wild  tribes  of  Mindanao  sacrifice  their  slaves 
to  propitiate  their  heathen  divinities.  Repulsive  as  these  facts  are,  it 
is  idle  to  enact  laws  or  issue  orders  until  they  can  be  made  effective. 
The  commission  believes  that  the  slavery  question  can  be  settled  with- 
out resort  to  violent  measures.  A  practical  result  of  the  intercourse 
between  Moros  and  Americans  has  already  been  seen  in  the  proclama- 
tion of  Dato  Mandij  abolishing  slavery  among  his  people  in  the  dis- 
trict of  Zamboango.  It  is  hoped  that  other  datos  may  be  induced  to 
follow  Mandij's  example,  and  that  eventually  the  wild  mountain  tribes 
may  be  reached  by  the  same  methods  which  have  been  so  happily 
employed  in  his  case. 

It  is  evident  that,  if  we  are  not  to  fail  in  our  dut}^  toward  the  savage 
or  half -civilized  Philippine  peoples,  active  measures  must  be  taken  for 
the  gathering  of  reliable  information  concerning  them  as  a  basis  for 
legislation,  and  an  act  has  therefore  been  passed  b}^  the  commission 
creating  a  bureau  of  non -Christian  tribes.  This  bureau  is  charged 
with  the  dutj'-  of  conducting  systematic  investigations,  in  order  to 
ascertain  the  name  of  each  tribe,  the  limits  of  the  territory  which  it 
occupies,  the  approximate  number  of  individuals  which  compose  it, 
their  social  organization  and  their  languages,  beliefs,  manners,  and 
customs,  with  especial  view  to  learning  the  most  practical  wa}'^  of 
bringing  about  their  advancement  in  civilization  and  material  pros- 
perity. This  bureau  has  the  further  duty  of  investigating  and  report- 
ing upon  the  practical  operation  of  all  legislation  with  reference  to 
non-Christian  peoples. 

FORESTRY. 

The  forest  resources  of  the  Philippine  Islands  have  been  repeatedly 
and  full}'  described.  Prior  to  the  passage  of  the  army  appropriation 
bill  the  exploitation  of  the  forests  was  carried  on  under  general  order 
of  the  militar}'^  governor,  No.  92,  series  of  1900,  which  divided  the 
timVjer  of  the  islands  into  six  classes.  Licenses  to  cut  timljer  were 
issued  for  the  nominal  sum  of  ^1,  and  a  charge  per  cubic  foot,  vary- 
ing with  the  class  of  the  timber,  was  paid  to  the  Government  on  all 
timber  cut.  This  was  practically  a  continuation  of  the  former  Spanish 
S3\stem,  with  the  difference  that  a  material  increase  was  made  in  the 
rates  at  which  Government  timber  was  sold.  Under  the  Spanish  law 
a  large  class  of  people  had  grown  up  which  was  wholly  dependent  for 
a  livelihood  upon  the  cutting  of  timber  belonging  to  the  State.  Tim- 
ber could  be  had  so  advantageously  from  the  Government,  that  it  was 
hardl}'  worth  while  for  private  individuals  to  seek  to  acquire  forest 
lands. 


OF    THE    PHILIPPINE    ISLANDS,    1900-190:j.  163 

In  view  of  the  provisions  of  the  Army  appropriation  bill  with  refer- 
ence to  the  sale  and  disposition  of  timber  on  public  lands  and  of  the 
hardship  which  would  have  resulted  from  their  strict  and  literal  enforce- 
ment, the  following-  cablegram  was  sent  to  you  on  March  7.  1901: 

Secretary  of  War,  Washlngtcm: 

High  price  of  lumber  one  of  people's  greatest  burdens  in  present 
situation.  Very  little  timber  on  private  lands.  People  almost  entirely 
dependent  on  purchase  of  timber  from  public  lands  to  repair  damages 
from  war.  If  new  legislation  abrogates  military  governor's  General 
Order  92  last  year,  fixing  veasonahle  rates  and  proper  limitations  under 
which  any  resident  can  cut  public  timber,  will  produce  greatest  hard- 
ship. If  so,  ask  authority  to  put  imported  timber  on  free  list.  Is 
cutting  of  timber  for  public  works  forbidden  ?     Request  opinion. 

Taft. 

The  following  message  was  received  in  reply: 

Washington,  March  30^  1901. 
Taft,  Manila: 

With  reference  to  your  telegram  of  7th,  it  is  considered  provisions 
act  Congress  of  March  2  do  not  interfere  with  existing  system  for- 
estry regulations  provided  by  Spanish  law,  as  modified  by  military 
governor  in  General  Order  92,  June  27,  1900.  Full  discussion  of  sub- 
ject forwarded  by  mail.     Advise  MacArthur. 

Root. 

The  military  order  was  accordingly  allowed  to  remain  in  force  until 
the  following  dispatch  was  received: 

Washington,  D.  C,  July  2 I^,,  IdOlS.J^Op.  m. 
Taft,  Manila: 

Secretary  of  W^ar  directs  send  by  first  available  transport  full  and 
complete  copies  existing  licenses  granted  by  forestry  bureau.  Do  not 
grant  more  licenses  till  you  receive  instructions.  Report  to  date,  and 
monthly,  thereafter,  amount  forest  products  taken  from  public  or  pri- 
vate lands,  also  amount  imported  and  exported  after  May  1.  Send  two 
sample  sets  forms  used  in  forestry  bureau. 

Edwards. 

These  instructions  were  complied  with.  The  issuance  of  all  licenses 
for  the  cutting  of  timber  on  Government  lands,  except  those  issued  to 
the  poor  for  pei-mission  to  cut,  free  of  charge,  the  little  timber  and  fire- 
wood absolutely  needed  by  them,  was  immediately  stopped,  and  licenses 
already  issued  were  not  renewed  when  they  expired.  This  necessary 
action  on  our  part  worked  hardship  on  a  number  of  people  who  had, 
in  good  faith,  invested  money  in  small  sawmills  or  in  the  construction 
of  roads  for  dragging  timber  out  of  the  forests.  It  tended  to  increase 
the  difficult}'  of  getting  the  lumber  absolutely  necessary  for  public 
works,  which  was  previously  very  great,  and  to  further  raise  its  price, 
which  was  Ijefore  so  high  as  to  be  almost  prohibitive,  While  the  few 
owners  of  private  timber  lands  were  in  a  fair  way  to  profit  by  a  tem- 
porary monopoly. 


1(U  REPORTS    OV    THE    CIVIL    GOVERNMENT 

In  view  of  these  facts,  the  following  cablegrams  were  addressed  to 
you: 

Manila,  Septemhe?'  4-,  1901. 
Secketary  of  War,   Washington: 

Would  assist  us  to  know  when,  if  at  all,  timber  licenses  may  again 
issue.  Present  effect  is  to  give  undue  advantage  to  those  with  licenses 
unexpired. 

Taft. 

Manila,  September  18,  1901. 
Secretary  of  War,  Washington: 

The  suspension  of  forestry  licenses  granting  causing  much  hardship 
in  Romblon,  ]\Iasbate,  and  other  places  where  people  dependent  timber 
cutting  for  livelihood.  Is  order  intended  to  suspend  gratuitous  licenses 
to  needy  ? 

Taft. 
To  these  answer  was  received  as  follows: 

Washington,  September  21.,  1901. 
Taft,  Manila: 

With  reference  to  your  telegram  of  I7th  September,  Secretary  of 
War  authorizes  further  issue  firewood  and  gratuitous  licenses,  especial 
care  being  taken  in  each  case  not  to  issue  more  than  actual  necessity 
demands.  With  reference  to  your  telegram  of  4th  September,  Secre- 
tary of  War  desires  to  know  if  practicable  to  insert  in  timber  licenses 
limitation  on  amount  to  be  cut  thereunder.  What  do  3^ou  advise  as 
maximum  ? 

Edwards. 

Our  repl}^  was: 

Manila,  September  ^5,  1901. 
Secretary  of  War,  Washington: 

Greatest  amount  timber  cut  one  year  b}"  one  person  or  company 
100,000  cubic  feet.  Commission  thinks  this  small.  Manila  demand 
for  lumber  great.  If  limitation  imposed,  should  not  think  500,000 
cubic  feet  for  a  year  excessive. 

Taft. 

We  are  now  anxiously  awaiting  your  decision  and  the  subsequent 
action  of  Congress  on  this  subject.  Briefiv  stated,  the  situation  is  as 
follows:  There  are  vast  Government  timber  lands  in  these  islands,  vari- 
ously estimated  at  from  twent}^  to  forty  millions  of  acres.  The  lum- 
ber industry,  as  conducted  up  to  the  present  time,  has  never  made  the 
slightest  impression  on  them.  More  timber  grows  eveiy  year  than  it 
is  at  all  possible  to  cut  for  lumber  under  existing  conditions.  That  no 
destruction  of  the  forests  by  lumbermen  is  occurring  is  shown  by  the 
fact  that  but  1,95.5, .561  cubic  feet  of  hrewood  and  2,469,930  cubic  feet 
of  timber  (equal  to  29,639,160  feet  board  measure)  were  cut  during 
the  fiscal  year  ending  June  30,  1901.  The  forests  produce  valuable 
woods  for  every  conceivable  purpose,  but  with  the  general  lack  of 
skilled  woodsmen  to  fell  the  trees,  of  draft  animals  to  drag  them  to 
the  sawmills,  and  even  of  the  mills  themselves,  the  price  of  timber  has 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  165 

been  and  is  remarkably  high  when  one  considers  its  abundance  and 
proximity  to  the  market.  In  Masi^ate,  in  the  island  of  Sibuyan,  and 
in  many  other  provinces  or  islands  there  are  large  nmnbers  of  woods- 
men who  would  be  threatened  with  starvation  should  their  one  means 
of  livelihood  be  taken  away  from  them.  War  has  destro3^ed  hun- 
dreds of  public  buildings  and  thousands  of  private  homes.  Within 
the  past  five  years  many  bridges  have  been  swept  away  b}^  floods  or 
have  been  burned,  and  few  of  them  have  as  yet  been  rebuilt.  The 
necessity  for  timber  has  never  been  so  great  here  as  it  is  to-da}',  and 
it  is  of  the  utmost  importance  that  all  unreasonable  restrictions  upon 
its  cutting  and  marketing  should  be  removed.  We  are  constanth'  in 
receipt  of  communications  from  municipalities  asking  for  entire 
exemption  for  a  period  of  years  from  the  payment  of  charges  on 
timber  from  Government  lands.  We  do  not  consider  such  sweeping 
exemptions  advisable,  because  a  law  can  be  devised  which  will  exempt 
the  man  who  can  not  afford  to  pay  for  the  timber  and  firewood  he 
must  have  and  will  reach  the  man  who  can  afford  to  pa}".  We  do 
feel  strongl}',  however,  that  the  reasonable  and  legitimate  development 
of  the  forests  of  the  State,  on  terms  advantageous  to  the  Government, 
should  be  authorized. 

The  real  cause  of  the  disappearance  of  our  forests  is  to  be  found  in 
the  Avidespread  practice  of  burning  the  tall  grass  known  as  "cogon" 
during  the  dry  season,  which  destroys  vast  numbers  of  3'oung  trees; 
and  in  that  of  making  so-called  "  caingins "'  or  clearings  by  felling  the 
forests,  burning  the  trees  where  they  lie  and  cultivating  the  soil  until 
weeds  invade  the  clearings,  then  abandoning  them  and  repeating  the 
same  operation  elsewhere.  While  General  Ordc  No.  92  contains  pro- 
visions against  these  practices,  their  enforcement  has  not  been  suffi- 
ciently strict,  nor  have  the  penalties  imposed  for  their  violation  been 
heavy  enough.  A  more  stringent  regulation  will  be  adopted  in  the 
near  future,  and  its  enforcement  made  obligatory  on  the  presidents  of 
all  municipalities  as  well  as  on  the  insular  constabular3^ 

The  only  legislation  enacted  by  the  commission  with  reference  to 
the  forests  in  these  islands  has  been  for  the  pui'pose  of  increasing  from 
time  to  time  the  force  of  the  forestry  bureau,  which  has  in  hand  their 
protection  and  the  collection  of  the  amounts  due  for  timber  cut  on 
public  lands.  Every  increase  in  this  force  has  been  followed  l)}^  a 
corresponding  and  gratifying  increase  in  the  revenue  collected.  The 
monthly  salary  list  at  present  aggregates  $3,40-i.  66,  The  collections 
in  the  month  of  August  last  aggregated  $14,654.10  and  for  September 
$15, .564.29,  the  sums  named  being  in  United  States  currenc}'.  For- 
estry officials  are  now  on  duty  in  the  provinces  of  Cagayan,  Pampanga, 
lloilo.  Union,  Albay,  Zani))ales,  Taya])as,  Bataan.  Tarlac,  North  Ilocos, 
Anibos  Camarincs,  Pangasinan,  Bulacan,  Leytc,  Rizal,  Batangas,  East- 
ern Negros,  Western   Negros,  Capiz,  Antique,   Masbate,    Romblon, 


1()()  REPORTS    OF    THE    CIVIL    OOVEUNMKNT 

South  Ilocos,  Cavite,  in  the  districts  of  Zamboanga  and  Cotabato  in 
the  island  of  Mindanao,  and  at  Jolo. 

IMiK'li  Avork  remains  to  be  done  in  tlic  way  of  the  collection  and 
identiiioation  of  our  forest  trees.  The  wealth  of  our  material  is  show^n 
by  the  fact  that  a  forestry  olficial,  sent  to  Zamboanga  to  make  a  collec- 
tion of  the  leaf,  fruit,  and  flower  of  each  of  the  different  varieties  of 
forest  trees  found  in  that  vicinity,  returned  in  three  months  with  wood 
and  leaves  from  423  species,  and  by  the  further  fact  that  the  forestry 
bureau  has  already  raised  the  number  of  known  tree  species  in  the 
Philippine  Islands  from  300  to  665. 

It  becoming  known  to  the  commission  that  gutta-percha,  the  most 
valuable  of  forest  products,  was  being  exported  in  considerable  quan- 
tities from  Cotabato  and  Zamboanga  to  Singapore  by  way  of  Jolo, 
without  paying  any  charges,  act  No.  165,  prohibiting  the  clearing  of 
vessels  carrying  forestry  products  which  had  not  paid  charges,  was 
passed.  In  view  of  the  great  commercial  importance  of  gutta,  two 
men  were  sent  to  Cotabato  to  collect  the  gums  from  all  gutta- 
producing  trees  in  that  region,  together  with  leaf,  fruit,  and  flower, 
where  practicable.  The  severe  and  long-continued  illness  of  one  of 
the  members  of  this  expedition  seriously  interfered  with  its  success, 
but  a  considerable  number  of  gum  and  leaf  samples  were  obtained. 
The  former  have  already  been  submitted  to  the  War  Department  for 
investigation  as  to  their  properties,  and  the  latter  will  be  identified  as 
soon  as  possible. 

At  the  same  time  an  agent  of  the  forestry  bureau  was  dispatched 
to  the  Straits  Settlements,  Java,  and  Sumatra,  under  the  following 
instructions: 

Forestry  Bureau, 
Manila,  I\  /.,  May  23;  1901 
Dr.  P.  L.  Sherman, 

Special  Agent  of  the  Forestry  Bureau,  Manila,  P.  I. : 
Sir:  The  following  resolution  was  adopted  by  the  United  States 
Philippine  Commission,  May  18,  1901: 

On  motion  of  Comminsioner  Worcester, 

Resolved,  That  Dr.  P.  L.  Sherman  be  appointed  special  agent  of  the  forestry 
bureau,  at  a  salary  of  $150  gold  per  month,  to  go  to  the  Straits  Settlements,  Java, 
and,  if  necessary ,"to  Sumatra,  and  to  investigate  methods  of  obtaining  gutta-percha, 
paying  especial  attention  to  the  new  process  of  extracting  it  from  leaves,  bark,  and 
twigs. 

Resolved,  further,  That  Dr.  Sherman  be  allowed  his  necessary  and  actual  traveling 
expenses  while  engaged  in  this  investigation. 

In  compliance  with  the  above  resolution,  you  will  proceed  to  Singa- 
pore at  your  earliest  convenience,  and  on  arrival  at  that  place  will 
investigate  the  production  of  gutta-percha  and  rubber  in  the  Straits 
Settlements,  paying  especial  attention  to  the  new  method  of  extracting 
gutta  from  twigs  and  leaves,  as  well  as  from  the  bark  of  trees  which 
have  been  felled  for  some  time. 

Your  investigations  on  the  subject  of  production  should  cover  all  the 
different  trees  of  that  region  furnishing  gutta  or  rubber,  and,  so  far  as 


OF    THE    PHILIPPINE    ISLANDS,    1!)0()-1903.  167 

practicable,  you  will  secure  and  proper!}'  preserve  for  the  forestry 
bureau  leaves,  flowers,  and  fruit  of  each  species,  together  with  full 
information  as  to  the  quality,  amount,  and  commercial  value  of  the 
gum  derived  from  each,  and  as  to  the  season  or  seasons  when  it  may 
best  be  obtained. 

You  will  make  a  very  complete  examination  as  to  the  methods  of 
extracting  the  latex  or  gum  and  of  preparing  the  same  for  the  market, 
studying  not  only  the  primitive  methods  emplo3'ed  by  the  natives,  but 
also  and  especially  the  new  process  above  referred  to. 

You  will  secure  photographs  of  fresh  leaves  and,  if  possible,  of  the 
fruit  and  flowers  of  the  several  gutta  or  rubber  producing  species,  also 
photographs  showing  in  detail  the  various  methods  of  extraction  and 
subsequent  treatment  a])ove  referred  to.  You  will  ascertain  as  accu- 
rately as  possible  the  percentage  of  gutta  obtained  by  the  several  meth- 
ods which  you  may  find  in  use,  the  relative  purity  of  the  products  thus 
secured,  and  the  cost  per  hundredweight  of  extraction  and  preparation. 
You  will  ascertain  the  market  price  of  the  different  grades  at  Singa- 
pore, will  secure  samples  of  each  of  these  grades,  and  will  learn,  so  far 
as  practicable,  the  ports  from  which  gutta  is  shipped  to  the  Singapore 
market  and  the  relative  amounts  coming  from  each  port,  paying  espe- 
cial attention  to  shipments  from  the  Philippines. 

You  are  authorized  to  visit  such  important  centers  of  gutta  produc- 
tion in  the  Straits  Settlements  as  may  be  best  suited  to  the  successful 
prosecution  of  this  work. 

Having  completed  your  investigations  there,  you  will  proceed  by  the 
most  direct  route  to  the  botanical  garden  at  Buitenzorg,  in  Java,  where 
you  will  secure  as  complete  a  series  as  possible  of  the  leaves,  fruits, 
and  flowers  of  gutta  and  rubber  producing  trees  and  plants,  with  all 
available  information  as  to  their  distribution,  the  quantities  and  value 
of  the  gums  which  they  furnish,  and  the  practicability  of  cultivating 
them  on  a  commercial  scale,  and  you  will  continue  your  observations 
as  to  the  methods  of  extraction  and  purification  of  gutta  and  rubber. 

You  will  visit  Sumatra  only  in  the  event  of  its  proving  impossible 
to  obtajn  full  information  on  the  subjects  above  outlined  in  the  Straits 
Settlements  and  Java. 

While  pursuing  these  investigations,  you  will  make  inquiries,  par- 
ticularly at  Buitenzorg,  with  a  view  to  ascertaining  on  what  terms  the 
services  of  a  thoroughly  competent  tropical  botanist  can  be  had  b}"  the 
forestry  bureau  of  the  Philippine  Islands. 

You  will  complete  this  work  in  the  shortest  practicable  time,  and 
will  then  immediately  return  to  Manila.  You  will  prepare  a  full  report, 
setting  forth  all  the  results  of  your  investigations,  before  arrival  at 
Manila  or,  should  this  be  impossible,  immediately  thereafter,  and  will 
submit  it  to  the  acting  chief  of  the  forestry  bureau,  with  a  view  to  its 
publication  for  the  information  of  the  general  public. 
Very  respectfully, 

Albert  E.  McCabe, 
Captain^  Thirtieth  Infantry^  TJ.  8.  7i,  in  charge  of  Bureau. 

Dr.  Sherman  returned  on  September  21,  bringing  a  valuable  collec- 
tion of  herbarium  specimens,  gutta-percha  and  rubber  samples,  and 
of  photographs  showing  leaves,  fruit,  and  flowers  of  various  gutta 
and  rubber  producing  trees,  or  illustrating  methods  of  extraction. 
His  report,  which  appears  as  Appendix  J,  gives  a  full  account  of  rubber 


108  REPORTS    OF    THE    CIVIL    GOVERNMENT 

and  gutta-percha,  and  states  where  th(>  important  varieties  have  thus 
far  been  found. 

It  appears  that  while  many  trees  produce  gutta  mixed  with  resinous 
or  other  substances,  the  main  source  of  the  gutta  which  is  available 
for  connneroial  purposes  is  afforded  by  trees  belonging  to  two  genera, 
l)ieho2>sis  and  Paycoui^  the  species  known  as  Dlchopsls  gutta.  Bent, 
producing  the  best  gutta  known.  The  destructive  method  of  extract- 
ing the  gutta  alwa^'s  employed  by  the  natives,  who  cut  down  the  trees 
and  ring  them,  is  shown  to  be  not  only  unnecessary  but  wasteful,  it 
being  possible  to  obtain  much  more  satisfactory  results  by  careful  tap- 
ping, without  any  injurj^  whatever  to  the  tree. 

In  1843  gutta-percha  trees  were  abundant  on  Singapore  Island  and 
throughout  the  Mala}^  peninsula.  They  have  now  been  so  thoroughly 
cleared  out  that  it  has  not  been  possible  for  the  authorities  of  the 
botanical  gardens  at  Singapore  to  obtain  flowers  or  fruit  for  years, 
although  a  standing  reward  for  them  has  been  offered  to  the  Sultan  of 
Johore  and  others.  The  destruction  of  trees  in  Sumatra  and  Borneo 
has  also  l)een  widespread.  The  demand  for  gutta  steadily  increases, 
while  the  supply  as  steadily  diminishes.  The  trade  of  the  world  is 
practicall}^  in  the  hands  of  the  Chinese  of  Singapore,  who  mix  the 
cheaper  grades  with  the  finer  and  color  and  adulterate  in  every  con- 
ceivable way.  It  was  found  that  there  was  possibly  a  ton  of  really 
first-class  gutta  in  Singapore,  while  there  was  an  immediate  demand 
for  600  tons. 

There  were  some  twenty-five  kinds  of  gutta  for  sale,  but  even  in  the 
case  of  the  half  dozen  more  important  kinds  it  was  impossible  to  trace 
the  relation  of  any  specific  kind  to  any  definite  tree,  the  Chinese  refus- 
ing to  tell  whatever  they  may  have  known  on  the  subject.  That  they 
themselves  really  knew  little  would  seem  to  be  indicated  by  the  fact 
that  when  shown  three  pure  samples  of  gutta  from  different  tree  spe- 
cies they  failed  to  recognize  the  source  of  any  one  of  them,  while  the 
prices  put  upon  these  samples  by  different  merchants  varied  greatly. 
The  fact  is  that  the  gutta  marketed  at  Singapore  comes  almost  exclu- 
sively from  places  where  only  wild  natives  penetrate.  It  seems  certain 
that  the  supply  is  rapidly  diminishing,  and,  although  the  quality  is 
falling  off',  prices  steadily  increase.  It  is  estimated  that  300,000,000 
pounds  of  gutta-percha  have  been  exported  from  Singapore  during  the 
last  fifty  years,  involving  the  destruction  of  at  least  150,000,000  trees 
and  the  waste  by  imperfect  extraction  of  some  3,000,000,000  pounds. 

The  Philippines  were  found  to  be  credited  with  232^  piculs  of  gutta- 
percha (of  133  pounds  each)  and  5  piculs  of  inferior  gutta  during  the 
last  six  months  of  the  year  1900.  This  is  far  from  representing  the 
total  amount  exported  from  the  Philippines,  as  niost  of  our  gutta, 
which  is  at  present  all  exported  from  Jolo,  goes  to  Sandakan  and 
Labuan  and  is  there  transshipped  to  Singapore  and  credited  to  British 
North  Borneo. 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  169 

Active  steps  arc  now  bein*^  taken  by  the  governments  which  have 
tropical  possessions  Avhere  g-utta-percha  trees  will  grow  for  their  prop 
agation,  Pi-opagation  by  seed  has  thus  far  proved  the  most  satisfac- 
tory method.  Self-sown  seedlings  from  the  jungles  may  also  l)e  used, 
but  are  difficult  to  transport  for  long  distances,  and  grow  compara- 
tively slowly.  The  vertical  shoots  which  spring  from  young  trees 
when  bent  over  and  fastened  in  that  position  are  being  experimented 
with,  as  is  the  method  of  causing  roots  to  spring  out  on  bark  by 
fastening  moist  earth  against  it  and  then  planting  bark  and  roots.  The 
time  required  for  a  tree  to  reach  maturity  is  not  at  present  known, 
and  blossoming  and  fruiting  are  very  irregular,  as  much  as  fifteen 
years  sometimes  elapsing  ])etween  successive  seasons. 

Important  and  interesting  experiments  as  to  improved  methods  of 
extraction  have  now  been  carried  on  for  some  time.  As  has  been 
stated,  very  satisfactory  results  may  be  obtained  by  tapping  the  trees, 
which  can  be  done  in  such  a  way  as  to  produce  a  considerable  yield  of 
gutta  without  inflicting  any  damage. 

It  having  long  since  been  ascertained  that  bark  remaining  on  gutta 
trees  which  had  been  felled  still  contained  5  per  cent  of  gutta,  while 
the  dead  leaves  contained  from  7  to  10  per  cent,  numerous  expe- 
dients have  been  tried  for  the  extraction  of  gutta  from  bark  and  leaves. 
The  processes  which  have  been  developed  are  patented  and  kept  secret, 
but  all  fall  under  one  of  three  groups.  Those  of  the  first  group  may 
be  called  mechanical  and  involve  grinding  of  leaves  and  bark  to  pow- 
der between  rollers,  washing  the  product  in  hot  water,  and  straining 
the  water  until  a  coherent  plastic  mass  is  produced,  which  is  free  from 
impurities.  The  more  successful  of  these  methods  recovers  from  5 
to  7  per  cent  of  gutta  from  dried  leaves.  The  objection  to  it  is  that  a 
certain  amount  of  cloroph}^  (leaf  green)  is  also  extracted  and  remains 
in  the  gutta,  leading  to  doubts  as  to  its  durability.  Gutta  obtained  in 
this  way  sells  at  from  |130  to  $180  per  picul  and  would  bring  double 
the  price  were  it  possible  to  remove  the  clorophyl. 

The  second  group  of  processes  may  be  termed  chemical,  the  leaves 
and  bark  being  ground  to  powder  and  the  gutta  removed  by  a  solvent. 
The  solution  is  then  treated  chemically  and  the  solvent  driven  off  or 
the  gutta  precipitated  by  some  other  chemical.  These  processes  have 
been  patented,  and  factories  were  erected  in  England  and  France  but 
failed  on  account  of  the  limited  supply  of  bark  and  leaves,  the  freight 
on  such  bulky  products  more  than  equaling  the  profit  on  the  gutta 
extracted.  Furthermore,  the  gutta  thus  extracted  retained  chemical 
impurities,  which  caused  decomposition.  A  more  recent  investigator, 
profiting  by  the  mistakes  of  his  predecessors,  has  improved  on  their 
methods,  and  has  established  a  factory  in  North  Borneo,  within  a  com- 
panitively  short  distance  of  gutta  trees,  where  he  is  manufacturing  a 
very  high-grade  article,  and  is  recovering  7  out  of  the  10  per  cent  of 
the  gutta  in  dried  leaves. 


170  REPORTS    OF    THE    (^IVIL    GOVERNMENT 

The  thiid  yroui>  of  niothods  may  bo  termed  chemical-mechanical, 
the  o-utta  beiiijif  extracted  hy  liot  water  from  powdered  leaves  and  Imrk, 
and  then  treated  with  chemicals  for  the  removal  of  impurities,  no 
harmful  after  eflfect  from  the  chemical  treatment  being  apparent. 
Hiyh-orade  o-utta  is  produced  in  this  wa}^ 

Dr.  Sherman  was  naturally  unable  to  obtain  admission  to  any  of  the 
factovies  where  these  secret  processes  were  used,  but  there  would  seem 
to  be  no  special  difhculty  in  the  w^ay  of  our  elaborating  a  satisfactory 
method  of  extraction  from  leaves  and  bark  here  in  the  Government 
chemical  laboratory,  as  the  general  principles  involved  are  known;  and 
it  is  further  known  that  there  is  no  first-class  chemist  connected  with 
the  factories  which  now  exist,  so  that  the  problem  can  hardl}^  be  very 
difficult. 

It  had  been  hoped  that  the  introduction  of  one  of  these  new  extrac- 
tion methods  in  Mindanao  and  the  erection  of  factories  would  prevent 
destruction  of  the  trees,  by  showing  the  natives  an  easier  and  more 
remunerative  manner  of  obtaining  the  gutta;  but  it  appears  that  experi- 
ence has  shown,  in  the  countries  where  improved  methods  have  been 
practiced,  that,  unless  watched,  the  natives  are  very  likely  to  fell  the 
trees  in  order  the  more  readily  to  get  at  the  leaves. 

It  is  estimated  that,  by  1907,  there  will  be  900,000  to  1,000,000  trees 
planted  and  growing  on  Government  plantations  in  Java,  and  two  pri- 
vate companies  have  also  embarked  in  this  enterprise  there.  The 
method  of  extraction  from  leaves  is  the  one  which  it  is  intended  ulti- 
mately to  utilize  both  on  Government  and  private  plantations. 

Great  Britain  and  Holland  are  the  countries  owning  all  known  gutta- 
percha lands  outside  the  Philippines,  and  they  are  taking  very  active 
steps  not  only  to  preserve  the  trees  which  remain,  but  also  to  estab- 
lish new  plantations.  Germany  has  long  had  an  agent  in  gutta  and 
rubl>er  producing  countries,  with  a  view  to  the  introduction  of  trees  into 
her  African  and  New  Guinea  possessions.  Some  years  since,  France 
sent  gutta  seedlings  to  all  her  tropical  possessions,  and  a  representa- 
tive of  that  Government  visted  Borneo.  Another  representative  is 
now  at  the  botanical  gardens  in  Buitenzorg  Java,  to  continue  the 
work. 

Although  the  best  gutta-producing  tree  {Dichopsis  gutta^  Bent)  has 
not  as  3^et  been  found  in  the  Philippines,  very  closely  allied  species  are 
already  known  and  the  gutta-percha  obtained  from  them  brings  |4:0  to 
$150  per  picul  at  Singapore.  The  trees  are  known  to  be  present  in 
large  numbers  in  southern  Mindanao  and  in  Tawi  Tawi. 

Holland  at  present  monopolizes  all  gutta-percha  seeds,  which  are  so 
valuable  that  it  is  found  more  profitable  to  keep  trees  for  seed  than  to 
extract  gutta  from  them.  There  can  be  no  reasonable  doubt  that,  if 
it  does  not  already  exist  there,  the  best  species  of  gutta  tree  would 
grow  in  Tawi  Tawi,  which  is  in  the  same  latitude  with  its  habitat  in 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  I7l 

north  Borneo.  Seedlings  could  readily  be  transplanted  from  Borneo 
and  Sumatra  to  the  Sulu  Archipelago  and  to  southern  Mindanao, 

Active  measures  will  immediately  be  taken  for  the  identification  of 
the  gutta-producing  trees  of  these  islands,  as  well  as  for  their  protec- 
tion, which  unfortunately  presents  a  difficult  problem,  as  the}^  are 
believed  to  be  confined  to  regions  inhabited  by  Moros  or  by  the  wild 
Indonesian  tribes  of  Mindanao.  It  is  hoped,  however,  that  Moro 
datos  may  be  made  to  see  the  importance  to  themselves  of  protecting 
the  trees,  and  that,  when  shown  the  good  results  that  may  be  obtained 
b}^  tapping,  they  will  themselves  take  active  measures  to  prevent  their 
people  from  destroying  what  might  be  such  a  source  of  profit  to  them. 

Dr.  Sherman's  report  also  contains  a  summary  of  the  methoda  of 
extracting  and  preserving  rubber  and  an  account  of  the  rubber  trees 
thus  far  successful!}^  cultivated.  One  of  the  best  of  these,  Flcus 
elastica^  is  known  to  grow  luxuriantly  wherever  planted  in  this  archi- 
pelago, and  a  Ceara  rubber  tree  grown  from  seed  in  Manila  has 
reached  a  height  of  21  feet  in  a  year. 

The  starting  of  rubber  and  gutta-percha  plantations  in  these  islands 
is  a  project  which  can  in  no  sense  be  considered  in  the  light  of  an 
experiment,  in  view  of  what  is  already  known,  and  which  might  well 
attract  the  attention  of  American  capitalists.  The  cost  of  planting 
cleared  ground  with  rubber  seeds  has  proved  to  be  but  |2  an  acre. 
The  first  good  harvest  should  be  had  in  about  six  years,  but  it  is  said 
to  be  practicable  to  plant  double  the  number  of  trees  needed  per  acre, 
and  at  the  end  of  three  j^ears  to  cut  out  half  of  them,  the  rubber 
secured  from"  the  trees  cut  being  sufficient  to  pay  all  expenses  up  to 
date.  Planters  estimate  a  return  of  $150  to  |200  per  acre  from  the 
rubber  crop,  after  the  trees  have  reached  maturity,  at  the  prices  which 
at  present  prevail.  Giant  rubber  vines  are  known  to  exist  in  the  for- 
ests of  the  Philippines.  Rubber  trees  have  also  been  reported,  but  the 
species  is  as  j^t  unknown. 

In  the  month  of  May  Capt.  George  P.  Ahern,  chief  of  the  forestry 
bureau,  was  granted  leave  of  absence  to  visit  the  United  States,  in 
order  to  secure  men  for  various  positions  in  the  forestry  bureau,  and 
took  with  him  samples  of  many  of  the  more  valuable  woods  for  exhi- 
})ition  there,  these  samples  to  be  eventually  turned  over  to  the  Forestry 
Division  of  the  Department  of  Agriculture  at  Washington. 

No  satisfactory  experiments  as  to  the  properties  of  Philippine  woods 
have  ever  been  carried  out.  The  chief  of  the  forestry  bureau  has 
therefore  been  authorized  to  expend  $3,000  for  equipping  a  laboratory 
for  testing  the  properties  of  our  various  woods. 

For  a  full  account  of  the  operations  of  the  forestry  bureau  during 
the  past  fifteen  months,  including  number  of  officials  and  their  salaries, 
number  of  licenses,  amount  of  forest  products  cut  or  otherwise 
obtained  under  them,  an  account  of  private  woodlands,  and  the  recom- 


172  REPORTS    OF    THE    CIVIL    GOVERNMENT 

mcndations  of  the  acting-  chief  of  the  forestry  bureau,  reference  is 
made  to  hi.s  report  to  the  civil  governor  for  the  fiscal  year  ending-  June 
30,  15^01,  which  appears  as  Appendix  H,  and  to  his  supplementary 
report  to  the  Secretary  of  the  Interior,  which  appears  as  Appendix  I. 

MINES. 

The  limitations  upon  mining  operations  have  been  even  more  strict 
than  those  upon  the  work  of  the  lumbermen.  It  has  l)een  considered 
b}'  the  connnission  that  the  Spanish  mining  laws  ceased  to  be  of  effect 
with  the  downfall  of  the  Spanish  sovereignty.  The  direct  necessity 
for  the  development  of  the  mineral  wealth  of  the  archipelago  has  been 
less  urgent  than  that  for  the  exploitation  of  the  forests,  and  no  mili- 
tar}^  order  has  ever  been  issued,  nor  has  any  act  been  passed  by  the 
commission,  authorizing  such  development.  As  will  be  seen  from  the 
report  of  the  chief  of  the  bureau  of  mines  (which  is  appended  hereto 
as  Appendix,  K),  the  operations  of  American  prospectors  have  fully 
demonstrated  the  existence  of  valuable  deposits  of  copper,  gold,  coal, 
and  iron.  "Capital  is  only  awaiting  the  opportunity  to  invest  in  these 
l^roperties.  Our  prospectors  have  been  an  exceptionally  good  class 
of  men.  They  have  never  caused  any  serious  disturbance  of  public 
order,  but  on  the  other  hand  have  often  pushed  into  the  mountains  in 
advance  of  the  Army,  and  have  established  friendly  relations  with 
man}'^  of  the  wild  tribes.  Some  of  them,  after  locating  properties 
which  they  believed  to  be  valuable  and  staying  by  them  until  their 
last  dollar  was  gone,  have  been  forced  to  abandon  the  attempt  to  secure 
recognition  of  their  claims.  Others  are  still  holding  on.  In  the  inter- 
est of  these  American  citizens,  who  have  shown  qualities  deserving  of 
all  respect,  and  in  the  interest  of  the  commercial  development  of  this 
archipelago.  Congressional  action  which  will  render  possible  the  devel- 
opment of  the  mineral  resources  of  the  Philippine  Islands  is  most 
strongly  urged.  A  mining  code  believed  to  be  suited  to  the  needs  of 
these  islands  has  been  prepared  by  the  chief  of  the  mining  bureau. 
Before  making  final  recommendations  in  regard  to  this  important 
matter,  the  commission  desires  to  give  miners  and  prospectors  an 
opportunity  to  be  heard.  A  public  hearing  has  been  set  for  October 
19,  and  the  final  draft,  embodying  any  amendments  that  may  seem 
desirable,  will  be  forwarded,  as  a  supplementary  exhibit,  by  the  next 
transport. 

The  work  of  the  mining  bureau  during  the  past  j^ear  has  necessarily 
been  limited  to  investigation  and  report  upon  mines  and  claims;  to  the 
translation  of  old  laws,  decrees,  and  documents;  to  the  gathering  of 
information  as  to  the  results  of  prospecting;  to  the  preparation  of 
maps  showing  the  whereabouts  of  mines  and  mineral  deposits;  to  the 
preparation  of  reports  on  the  more  important  minerals  found  in  the 


OF   THE    PHILIPPINE   ISLANDS,   1900-1903.  173 

archipelago,  and  to  laboratory  work  and  assay's  on  such  material  as 
could  be  obtained.  The  work  performed  has  been  large  in  amount, 
and  it  has  been  well  done. 

AGRICULTURE. 

The  Philippine  Islands  are  fundamentally  an  agricultural  country. 
So  much  has  already  been  said,  and  said  truly,  as  to  the  great  produc- 
tivity of  the  soil  and  the  diversit}^  of  climate  within  the  archipelago 
that  this  subject  may  here  be  passed  over.  The  methods  of  cultivation 
at  present  employed  are  of  the  crudest.  Modern  agricultural  imple- 
ments are  practically  unknown.  Artificial  fertilization  of  the  soil  is 
almost  unheard  of,  and,  as  a  rule,  land  is  not  deemed  worth  cultivation 
unless  it  will  continue  to  produce  crops  indefinitely  without  enrichment. 

On  the  recent  trip  of  the  commission  up  the  Cagayan  Valley  in 
Luzon  inquiry  was  made  as  to  what  percentage  of  the  tobacco  lands  of 
that  region  were  under  cultivation,  and  we  were  informed  that  prac- 
tically all  the  good  lands  were  cultivated.  We  inquired  what  consti- 
tuted good  tobacco  lands,  and  were  told  that  those  lands  overflowed 
annually  b}^  the  river  were  considered  good,  because  they  were  thus 
annually  fertilized  and  never  became  exhausted.  Upon  asking  as  to 
the  lands  not  annualh^  ovei"flowed,  we  were  informed  that  they  were 
not  considered  valuable,  as  they  would  only  produce  tobacco  for  about 
twelve  years  without  enrichment.  There  can  be  no  reasonable  doubt 
that  judicious  use  of  fertilizers  on  ground  which  grows  sugar  cane  and 
other  valuable  products  would  be  far  more  than  repaid  by  increased 
crops. 

There  is  a  wide  field  for  the  introduction  of  new  fruits,  fodder 
grasses,  grains,  rubber  and  gutta  producing  trees.  Grapes,  strawber- 
ries, raspberries,  blackberries,  figs,  and  walnuts  have  alread}^  been 
planted  in  Benguet,  and  are  growing  well.  Tea  has  also  been  intro- 
duced with  encouraging  results. 

The  loss  of  a  large  percentage  of  the  draft  animals  b}^  rinderpest 
in  many  of  the  provinces,  the  ravages  of  vast  flocks  of  locusts,  which 
have  multiplied  unchecked  since  1896,  and  the  disturbed  condition  of 
the  country  within  the  same  period,  which  has  in  many  instances  pre- 
vented the  tilling  of  the  soil  and  allowed  a  rank  growth  of  tropical 
vegetation  to  overrun  extensive  areas  of  land  formerly  cultivated, 
have  combined  to  throw  a  heavy  burden  on  the  agriculturists  of  these 
islands.  In  many  provinces  they  are  struggling  under  it  manfully, 
and  all  possible  help  should  be  given  to  them. 

Much  of  the  agricultural  land  of  the  Philippines  is  admirably  adapted 
to  cultivation  by  steam  plows  and  harrows.  The  water  bufi'alo,  which 
has  suffered  most  heavilv  from  rinderpest,  has  always  been  at  best  a 
slow  and  unsatisfactory  draft  animal.  The  American  mule,  on  the 
other  hand,  thrives  here.     It  is  believed  by  the  Filipinos  that  mules 

23181—04 12 


174  REPORTS    OF    THE    CIVIL    OOVERNMENT 

would  1)0  unable  to  work  in  soo-oy  or  tloodiHl  hinds  at  the  beginning  of 
the  rainy  season,  which  is  the  time  when  plowing  is  at  present  usually 
done,  and  they  are  equally  confident  that  the  sun-])aked  earth  is  too 
hard,  before  the  oncoming  of  the  rains,  to  bo  plowed  even  by  mules. 
In  any  event,  active  stops  must  be  taken  looking  either  to  restocking 
of  the  islands  with  water  builaloes  or  to  their  substitution  by  some 
more  satisfactor}^  draft  animal. 

Burros  might  be  bred  here  at  a  handsome  profit  for  use  as  pack 
animals  in  the  mountains.  There  arc  thousands  of  square  miles  of  the 
finest  grazing  lands  in  the  archipelago,  and  beef  cattle  better  than  the 
Indian  humped  cattle  now  found  in  the  islands  might  profitably  be 
introduced, 

A  bureau  of  agriculture  to  conduct  investigations  and  disseminate 
useful  information  with  reference  to  the  agricultural  resources  of  the 
islands,  the  methods  of  cultivation  at  present  in  vogue  and  the  possi- 
bility of  their  improvement,  the  practicability  of  introducing  new  and 
valuable  agricultural  products,  the  best  methods  of  combating  the 
diseases  of  domesticated  animals  and  of  plants  useful  to  man,  the  intro- 
duction of  new  domesticated  animals  and  the  improvement  of  the  breeds 
now  found  in  the  islands,  and,  in  general,  to  promote  the  development 
of  the  agricultural  resources  of  the  archipelago  is  an  urgent  necessity, 
and  the  creation  of  such  a  bureau  has  been  provided  for  in  act  No.  261. 

FISHERIES. 

Marine  and  fresh-water  fisheries  afford  a  very  important  source  of 
food  supply  for  these  islands.  The  only  legislation  thus  far  enacted 
with  reference  to  fisheries  is  contained  in  the  municipal  code,  and 
authorizes  municipalities  to  levy  taxes  upon  the  privilege  of  fisheries 
within  their  respective  jurisdictions. 

WEATHER   BUREAU. 

The  maintenance  of  an  adequate  weather  service  and  the  issuing  of 
dail}^  storm  warnings  is  of  unique  importance  in  the  Philippine  Islands 
because  of  their  position  with  reference  to  what  may  be  called  the 
' '  breeding  ground  "  of  typhoons.  The  large  majority  of  these  destruc- 
tive storms  have  their  point  of  origin  to  the  east  or  southeast  of  this 
archipelago,  and  the  signs  which  unfailingly  forecast  their  approach 
are  to  be  noted  here  much  sooner  than  at  any  other  point,  so  that 
warnings  can  be  sent  to  threatened  portions  of  the  Philippines,  or  of 
the  Chinese,  Formosan,  or  Japanese  coasts,  in  time  to  allow  the  taking 
of  suitable  precautions.  The  Manila  Observatory,  with  a  few  out- 
lying stations,  rendered  the  Spanish  Government  efiicient  service  up 
to  the  time  of  the  capture  of  Manila  by  the  American  forces.  The 
oiEcial  support  previously  furnished  it  by  the  Spanish  Government 
was  continued  by  the  United  States  military  government. 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  175 

It  has  long  been  evident  that  a  considerable  extension  of  the  service 
by  the  establishment  of  new  stations  was  needed,  if  thoroughly  reliable 
and  timel}^  storm  warnings  were  to  be  furnished.  A  plan  for  an  ade- 
quate system  of  stations  and  for  the  equipment  required  bj"  each  was 
prepared  by  the  director  of  the  observatory  and  submitted  to  the  Chief 
of  the  United  States  Weather  Bureau  for  approval.  It  has  been 
adopted  as  approved  by  the  commission,  and  act  No.  131,  providing 
for  the  establishment  of  a  weather  bureau  for  the  Philippine  Islands 
and  making  the  necessar}'^  appropriations  for  the  purchase  of  meteoro- 
logical instruments  and  apparatus  and  their  installation,  has  been 
passed  in  order  to  put  this  plan  into  effect.  This  act  makes  it  obliga- 
tory upon  the  chief  of  the  bureau  to  send  daily  weather  forecasts  and 
storm  warnings  to  the  captains  of  all  ports  in  the  archipelago  which 
are  in  telegraphic  communication  with  Manila,  and  to  the  officers  of 
the  insular  government  and  the  heads  of  all  civil  departments  and 
bureaus  in  Manila,  and  to  send  special  telegraphic  storm  warnings  to 
any  seriously  threatened  districts  in  the  archipelago  whenever  prac- 
ticable; also  to  send  warnings  of  dangerous  storms  to  China,  Formosa, 
and  Japan.  The  central  station  of  the  bureau  is  the  Manila  Observa- 
tory, and  the  instruments,  instrument  rooms  and  tower,  library, 
printing  room,  lithographing  room,  printing  presses,  and  type  of  this 
institution  are  rented  b}"  the  insular  government  at  $375  per  month. 

The  act  further  provides  for  the  establishment  of  9  fir.st-class  sta- 
tions, 25  second-class  stations,  17  third-class  stations,  and  20  rain  sta- 
tions, which  are  so  distributed  as  to  cover  the  entire  archipelago. 
First-class  stations  have  already  been  established  at  Aparri,  in  Caga- 
yan;  San  Fernando,  Union;  Baguio,  Benguet;  Dagupan,  Pangasinan; 
Ormoc,  Leyte;  Iloilo,  province  of  Iloilo;  Cebu,  province  of  Cebu,  and 
Zamboanga,  district  of  Zamboanga.  Second-class  stations  have  been 
established  at  San  Isidro,  Nueva  Ecija;  Capiz,  province  of  Capiz; 
Tacloban,  Leyte;  Maasin,  Leyte;  Tagbilaran,  Bohol,  and  Butuan,  in 
the  province  of  Surigao,  Mindanao.  One  third-class  station  has  been 
established  at  Surigao,  the  capital  of  the  province  of  the  same  name. 
For  a  further  account  of  the  recent  work  of  the  bureau  reference  is 
made  to  the  report  of  the  director  to  the  Secretary  of  the  Interior, 
which  appears  as  Appendix  L. 

PUBLIC    HEALTH. 

If  any  further  demonstration  of  the  fact  that  the  climate  of  the 
Philippine  Islands  is  unusually  healthful  for  a  tropical  country  was 
needed,  it  has  been  afforded  by  the  remarkably  low  sick  rate  during 
the  past  year  among  troops  scattered  in  hundreds  of  municipalities 
throughout  the  archipelago. 

It  has  been  stated  that  large  numbers  of  soldiers  have  become  insane 
here,  and  in  some  (quarters  this  fact  has  been  attributed  to  the  climate. 


176  KKPOKTS    OK    'IllK    CIVIL    (iOVKKNMKNT 

The  trutli  is  tli:it  tlu>  laroi^  majoi-ity  of  cnsos  of  iiisanity  amoiio-  the 
soldiers  have  biHMi  prodiUHnl  l)y  (Iriiikino-  so-caHod  '"viiio,'"  which  has 
been  shown  by  cluMnical  analysis  to  contain  in  some  instances  as  high  as 
17  per  cent  of  fusil  oil,  and  is  therefore  a  deadly  poison. 

Although  the  climate  must,  on  the  whole,  be  considered  good,  the 
presence  of  Inibonic  plague  in  the  city  of  Manila  and  its  appearance  in 
several  adjacent  towns;  the  fact  that  smallpox  still  prevails  in  v  any  of 
the  provinces,  and  will  continue  to  do  so  until  a  general  system  of  pub- 
lic vaccination  has  been  inaugurated;  the  occurrence  of  scattered  groups 
of  lepers,  many  of  whom  are  now  living  without  medical  assistance 
and  without  control;  the  necessity  of  combating  malarial  and  other 
fevers  and  the  several  varieties  of  dysenter}^  which  occur  here,  together 
with  )-inderpest  among  the  cattle,  and  last  but  not  least  the  absolute 
ignorance  of  or  disregard  for  the  most  axiomatic  hygienic  laws  which 
prevails  in  most  of  the  municipalities,  combine  to  cause  abundant 
need  of  an  insular  board  to  have  general  charge  of  the  health  interests 
of  the  archipelago. 

Such  a  board  was  created  by  act  No.  157.  It  consists  of  a  commis- 
sioner of  public  health,  a  sanitary  engineer  (who  is  also  the  city  engi- 
neer of  Manila),  a  chief  health  inspector,  a  secretary  of  the  board,  and, 
ex  officio,  the  superintendent  of  government  laboratories.  The  chief 
surgeon  of  the  United  States  Army  in  the  Philippine  Islands,  the  chief 
officer  of  the  United  States  Marine-Hospital  Service  in  the  Philippine 
Islands,  and  the  president  and  vice-president  of  the  Association  of 
Physicians  and  Pharmacists  of  the  Philippine  Islands  are  honorary 
members  of  this  board.  It  has  been  given  wide  powers,  which  are 
believed  to  be  adequate  for  the  proper  safe-guarding  of  the  public 
health,  and  has  been  directed  to  prepare  and  submit  to  the  commission 
necessary  sanitary  legislation  and  legislation  providing  for  the  exten- 
sion of  the  public-health  service  into  the  several  provinces  and 
municipalities. 

The  sanitary  condition  of  Manila  is  such  as  to  make  an  efficient  local 
health  board  most  necessary.  The  city  stands  on  very  low  and  rather 
flat  ground;  it  has  never  had  a  sewer  system,  and  as  a  result  the  soil 
has  become  infiltrated  with  impurities.  The  tidal  streams  or  "  esteros," 
which  branch  out  through  the  city  from  the  Pasig  River,  are  practically 
open  sewers  and  form  a  constant  menace  to  the  public  health.  Many 
of  the  buildings  are  improperly  constructed  and  badly  overcrowded. 
In  order  to  insure  efficiency  and  render  impossible  any  clash  of  author- 
ity, which  might  result  harmfully  for  the  public  interest,  the  board  of 
health  for  the  Philippines  has  been  made  also  the  local  board  for  the 
city  of  Manila  and  has  been  doing  efficient  work. 

It  was  not  found  practicable  to  fill  the  office  of  chief  health  inspector 
until  the  1st  of  August.  Since  then  the  board  has  been  actively 
engaged  in  improving  the  health  conditions  of  the  city  of  Manila  and 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  177 

in  drafting  sanitary  laws  for  submission  to  the  commission,  A  vigor- 
ous campaign  against  bubonic  plague  has  been  inaugurated,  and  as  a 
result  this  disease  has  almost  completel}-  disappeared.  A  system  of 
inspection  has  been  put  in  force  which  is  so  complete  as  to  render  it 
well-nigh  impossible  for  a  case  of  plague  to  occur  without  the  knowl- 
edge of  the  board  of  health.  A  war  of  extermination  is  being  waged 
against  rats,  which  are  known  to  play  an  important  part  in  propagat- 
ing plague. 

No  case  of  smallpox  has  originated  in  the  citj^  of  Manila  since  Jan- 
uary 1,  1901. 

The  greatest  source  of  mortality  is  pulmonary  tuberculosis,  which 
has  caused  16S  deaths  during  the  past  two  months.  It  is  most  preva- 
lent among  the  very  poor,  who  live  crowded  together  under  ver}^ 
unsanitary'  conditions.  Measures  are  now  being  taken  to  ascertain  the 
exact  whereabouts  of  all  persons  in  Manila  suffering  from  pulmonary 
tuberculosis,  with  a  view  to  the  possible  estal)lishment  of  a  consump- 
tive colony  outside  the  cit}'  limits  for  those  cases  where  danger  of 
infecting  others  is  greatest. 

The  commissioner  of  public  health  has  taken  charge  of  the  leper  hos- 
pitals of  the  archipelago,  which  are  located  at  Cebu,  Iloilo,  and  Pal- 
estina  (Ambos  Camarines),  respectively.  They  contain,  all  told,  some 
500  lepers.  A  leper  census  of  the  islands  is  being  taken,  with  a  view 
to  the  eventual  segregation  of  all  persons  suffering  from  this  disease 
on  the  isolated  but  fertile  and  healthful  island  of  Cagayan  de  Jolo, 
where  they  can  be  given  Ijetter  care,  allowed  greater  libertv,  and  made 
more  contented  than  when  confined  in  hospitals.  It  is  believed  that 
with  the  income  derived  from  property  already  set  aside  for  the  sup- 
port of  lepers,  and  with  the  agricultural  work  which  those  in  the 
early  stages  of  the  disease  would  be  glad  to  perform,  if  given  oppor- 
tunity, a  leper  colony  might  be  established  at  comparatively  little 
expense  to  the  insular  government.  The  number  of  lepers  in  the 
archipelago  has  been  estimated  to  be  as  high  as  30,000,  but  the  com- 
missioner of  public  health,  who  has  had  wide  opportunity  for  o])serva- 
tion,  expresses  the  lielief  that  there  are  less  than  10,000  of  them. 

Rindci-pest  and  plagues  of  locusts  have  been  widespread  during  the 
l)ast  year.  Rinderpest  is  now  rapidly  disappearing,  probably  as  a 
I'csult  of  the  diminution  of  cattle,  duo  to  its  ravages.  At  the  request 
of  the  governors  of  several  provinces,  experts  have  been  sent  by  the 
l)oard  of  health  to  instruct  the  Filipinos  in  the  method  of  making 
post-mortems  and  of  inoculations  of  gull  from  diseased  animals  for  the 
innnunization  of  healthful  animals. 

A  partially  successful  attempt  has  been  made  to  introduce  African 
fungus  disease  among  locusts.  The  material  used  by  the  board  of  health 
was  obtained  f  i-om  Negros,  where  it  had  produced  excellent  results.  A 
fresh  stock  of  pure  fungus  culture  will  )x^  o))tained  at  the  earliest  prac- 


178  REPOBTS    OF    THE    CIVIL    GOVERNMENT 

tica)>le  time  and  tho  disoaso  will  bo  propagated  among-  locust  swarms 
wherever  found. 

IMedioal  assistance  is  furnished  to  indigent  natives  in  the  cit}^  of 
Manila  by  employees  of  tho  board  of  health,  and  it  is  hoped  that,  with 
the  extension  of  the  service  of  the  board  to  provinces  and  municipalities 
outside  of  Manila,  it  will  become  practicable  to  relieve  the  worst  cases 
of  suli'ering  throughout  the  islands.  ]for  a  further  description  of  tho 
work  of  the  board  of  health  since  August  1,  1901,  reference  is  made 
to  the  report  of  the  commissioner  of  public  health,  which  is  appended 
hereto  as  Appendix  M. 

CIVIL   HOSPITAL. 

A  thoroughly  equipped  modern  public  civil  hospital  has  long  been 
one  of  the  crying  needs  of  the  city  of  Manila,  and  the  necessity  has 
become  steadily  more  urgent  with  the  increase  in  the  number  of 
American  civilians  resident  in  the  Philippines.  On  June  27,  1901, 
you  were  requested  by  cable  to  authorize  the  purchase  of  the  buildings 
formerly  used  by  the. military  as  the  "second  reserve  hospital"  and 
the  large  lot  on  which  this  building  stands,  at  a  cost  of  $235,000,  includ- 
ing equipment  and  repairs.  Your  authorization  for  this  transaction 
was  received,  but  unfortunately  the  owners  refused  to  sell  the  prop- 
erty at  a  fair  price. 

The  Women's  Hospital  of  Manila,  founded  by  Mrs.  Whitelaw  Reid, 
with  beds  for  15  patients,  has  afforded  relief  to  a  number  of  the  most 
serious  cases  among  civilians  and  has  saved  not  a  few  lives;  but  the 
accommodations  which  it  affords  have  been  utterly  inadequate  to  meet 
our  needs,  and  the  high  charge  necessarily  made  for  the  excellent  food 
and  nursing  furnished  there  have  been  prohibitive  for  many  of  the 
civil  employees. 

As  a  temporary  expedient,  an  attending  physician  and  surgeon  and 
an  assistant  attending  physician  and  surgeon  were  employed  to  treat 
civil  officers  and  employees  and  members  of  their  families,  either  at 
an  office  established  in  the  ayuntamiento,  or  at  the  homes  of  the  patients, 
or  at  the  Women's  Hospital,  as  seemed  best,  and  medical  and  surgical 
treatment  and  medical  supplies  were  furnished  free  of  charge. 

After  months  of  delay,  a  fairly  good  building,  large  enough  to  accom- 
modate 100  beds,  has  been  secured,  equipped,  and  opened  to  receive 
patients.  Emergency  cases  among  all  classes  of  residents  will  be 
received  there  at  all  times,  and  should  the  accommodations  which  it 
affords  prove  more  than  adequate  for  treating  the  sick  among  civil  offi- 
cers, employees,  and  their  families,  all  beds  unoccupied  will  be  made 
available  for  other  civilians.  This  hospital  is  supported  b}^  the  insular 
government.  A  charge  of  $1  per  da}^  is  imposed  on  patients  in  wards, 
while  those  who  desire  private  rooms  pay  from  |10  to  $20  per  week  for 
them,  in  addition  to  the  $1  per  day.     Patients  may  be  exempted  from 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  179 

any  payment,  should  their  circumstances  render  this  course  desirable. 
While  this  is  a  distinct  step  in  advance,  it  must  of  necessitj^  be  but  a 
temporary  expedient.  A  large,  well-equipped,  modern  hospital  must 
be  provided  in  the  near  future. 

GOVERNMENT   LABORATORIES. 

The  day  has  passed  Avhen  any  government  can  afford  to  attempt  to 
get  on  without  laboratories  for  scientific  investigation,  and  the  need 
of  such  laboratories  has  long  been  urgent  in  the  Philippine  Islands. 
In  connection  with  the  work  of  the  insular  board  of  health  there  must 
be  a  suitable  biological  laboratory  for  the  certain  diagnosis  of  typhoid 
and  malarial  fevers,  tuberculosis,  bubonic  plague,  different  kinds  of 
dysentery,  and  other  diseases  in  which  the  microscope  affords  the  only 
satisfactorj^  means  of  early  and  final  diagnosis.  There  must  also  be 
adequate  facilities  for  the  production  of  the  vaccine  virus,  serums,  and 
prophylactics  necessary  to  combat  the  diseases  of  this  country,  while 
the  careful  study  of  those  of  our  more  dangerous  diseases  for  which 
satisfactory  remedies  or  means  of  prevention  have  not  j'-et  been  found 
is  a  work  of  the  utmost  importance.  The  board  of  health  must  also 
have  facilities  for  carrying  on  chemical  work  in  urinary  analysis  in 
cases  of  supposed  poisoning,  in  the  analysis  of  drinking  waters,  and 
especiall}^  in  the  detection  of  harmful  adulterations  in  foods  and  drinks, 
which  are  extremely  common  in  this  country. 

The  bureau  of  agriculture  also  has  need  of  laboratories  in  which  it 
may  investigate  the  diseases  and  ma}^  study  the  enemies  of  plants  and 
animals  useful  to  man,  and  may  seek  remedies  for  such  diseases  and 
means  of  combating  such  enemies.  It  must  also  have  opportunity 
to  investigate  the  composition  of  soils  and  fertilizers,  the  amount  and 
quality  of  sugar  in  cane  grown  under  varying  conditions,  and  the 
numerous  other  conditions  demanding  determination  which  constantly 
present  themselves  in  the  practical  work  of  such  a  bureau. 

With  the  wealth  of  medicinal  drugs  and  herbs,  resins,  gums,  and 
rubber  and  gutta-percha  producing  vines  and  trees  which  these  islands 
afford,  chemical  work  as  to  the  value  of  these  products  and  the  best 
methods  of  obtaining  them  is  of  great  value  to  our  commerce  and  to 
the  forestry  bureau,  as  is  the  investigation  of  the  more  valuable  essen- 
tial oils  obtained  from  plants  or  flowers  grown  here.  The  oil  of  the 
"  champaca, "  a  flower  which  grows  here  very  readily,  is  worth  approx- 
imately $L,000  an  ounce,  but  no  satisfactory  method  of  distilling  it  has 
as  yet  been  obtained.  Chemical  investigation  would  doubtless  solve 
this  problem. 

The  development  of  the  mineral  resources  of  the  Philippine  Islands 
is  in  its  earliest  stages,  and  the  mining  bureau  can  not  do  proper  work 
unless  suitable  facilities  are  provided  for  analysis  and  assaying.  There 
arc  very  numerous  miuero-medicinal  springs  in  the  archipelago,  many 


180  EEPORTS    OF    THE    CIVIL    GOVERNMENT 

of  wliieh  have  reputed  therapeutic  value,  and  thv  determination  of 
the  properties  of  these  niiiiero-medieinal  waters  is  another  matter  of 
importance. 

Questions  frequently  arise  in  tlie  custom-house  which  can  be  settled 
only  by  an  expert  chemist. 

It  is  needless  to  discuss  the  necessity  or  the  value  of  the  work  above 
outlined,  but  one  or  two  practical  illustrations  of  it  may  be  given. 
These  islands  have  just  suffered  from  an  epidemic  of  rinderpest,  which 
in  some  provinces  has  destroyed  more  than  90  per  cent  of  the  cattle, 
reducing-  former  cattle  owners  to  poverty  and  preventing  agriculturists 
from  tilling  the  soil.  In  several  provinces  actual  starvation  has  re- 
sulted, and  the  insular  government  has  been  compelled  to  inaugurate 
public  works  or  to  directly  contribute  food  in  order  to  succor  the  hun- 
gry. Meanwhile,  the  board  of  health  has,  in  its  inadequately  equipped 
laboratory,  worked  out  a  method  of  using  the  bile  of  animals  which 
have  died  from  rinderpest  to  immunize  those  not  yet  attacked  which 
has  proved  highly  successful.  Had  it  been  elaborated  and  put  into 
effect  a  little  sooner  the  people  of  the  countrj^  might  have  been  saved 
the  loss  of  millions  of  dollars'  worth  of  property  and  the  Government 
would  have  been  spared  the  necessity  of  protecting  itself  and  the  more 
fortunate  of  its  people  against  men  driven  to  robbery  and  brigandage 
b}^  sheer  desperation. 

Some  time  since  the  Manila  board  of  health  had  under  consideration 
a  question  involving  the  destruction  of  $50,000  worth  of  alcoholic 
drinks,  alleged  to  contain  very  harmful  impurities.  A  mistaken 
analysis  might  have  resulted  in  the  necessity  of  the  board's  paying 
very  heavy  damages. 

It  was  not  strange  that  laboratories  began  to  spring  up  in  the  several 
bureaus  and  departments  of  the  insular  government,  and  as  an  inev- 
itable consequence  of  their  number  they  were  in  a  fair  way  to  be 
undermanned,  improperly  equipped  with  apparatus  and  chemicals,  and 
without  adequate  library  facilities. 

With  a  view  to  providing  against  the  perpetuation  of  the  small  and 
poorly  equipped  laboratories,  which  would  have  resulted  in  a  needless 
expense,  loss  of  space  for  laboratory  installation,  and  duplication  of 
instruments,  apparatus,  ])ooks,  and  even  of  investigations  carried  on 
and  of  experts  to  make  such  investigations,  act  No.  156  was  passed  by 
the  commission.  It  provides  for  the  establishment  at  Manila  of  a 
biological  and  chemical  laboratory,  to  be  suitably  equipped  for  doing 
all  the  biological  and  chemical  work  necessary  for  the  proper  carrying 
on  of  the  work  of  the  several  departments  and  bureaus,  and  to  have 
adequate  library  facilities,  so  that  the  work  of  all  the  departments  may 
be  done  to  the  best  possible  advantage.  A  temporary  building  has 
been  rented  until  a  suitable  permanent  structure  can  be  erected,  and 
important  investigations  are  in  progress. 


OF   THE    PHILIPPINE    ISLANDS,   1900-1903.  181 

When  these  laboratories  are  thoroughly  equipped  and  suitably 
housed,  it  is  purposed  to  ati'ord  opportunity  each  year  for  a  few  experts 
from  the  United  States  to  come  here  and  carry  on  investioations.  The 
commission  has  definitely  ascertained  that  several  such  men,  of  national 
reputation,  would  be  glad  to  avail  themselves  of  an  opportunity  for 
investigation  here  for  a  year  or  more  if  allowed  their  l)are  expenses. 
By  securing  their  services  in  this  way  the  insular  government  would 
be  greatly  benefited  and  at  a  minimum  expense. 

PHILIPPINES   CONSTABULARY. 

In  its  last  report  to  the  Secretary  of  War,  the  commission  presented 
its  views  at  some  length  upon  the  question  whether  native  troops  and 
native  police  should  be  used  in  establishing  and  maintaining  order  in 
the  islands  and  whether  they  could  with  safety  be  largelj^  substituted 
for  American  soldiers. 

Among  the  reasons  given  for  reaching  an  affirmative  conclusion, 
the  undesirability  of  maintaining  a  large  arm}^  of  Americans  in  the 
islands,  both  on  the  score  of  public  polic}'  and  economy,  was  pointed 
out.  Attention  was  called  to  the  fact  that  such  resistance  to  American 
authority,  as  then  existed,  was  in  no  sense  an  organized  war,  but 
merely  the  resistance  of  guerrilla  and  ladrone  bands,  generally  hiding 
in  obscure  mountain  fastnesses  and  making  desultory  attacks  on  small 
bodies  of  our  men,  usually  without  efi'ect,  dispersing  when  hard 
pressed  and  assuming  the  role  of  inoffensive  noncombatants. 

It  was  further  shown  that  a  double  role  of  this  sort  was  possible 
with  American  soldiers,  who  found  it  difficult  to  distinguish  one  Fili- 
pino from  another,  were  unacquainted  with  their  language  and  habits, 
and  had  no  means  of  acquiring  an  accurate  knowledge  of  their  move- 
ments, but  that  native  troops  and  police  would  experience  no  such 
difficulty  and  could  be  readily  enabled  to  put  an  end  to  such  methods. 

The  commission  further  directed  attention  to  the  fact  that  the 
masses  of  the  people  were  anxious  for  peace  and  quiet  and  ready  to 
accept  American  sovereignty,  but  as  matters  then  stood  thej'  were 
terrorized  and  often  forced  into  an  attitude  of  hostility  which  they 
did  not  feel,  and  that  organizing  troops  and  police  from  their  own 
people  would  inspire  then)  with  confidence  and  courage  and  convince 
them  that  they  could  best  protect  themselves  by  actively  aiding  the 
civil  and  military  authorities.  The  objection  made  as  to  the  loyalty 
and  effectiveness  of  native  troops  and  police  was  discussed  and  the 
conclusion  reached  that  it  was  without  foundation. 

The  commission  has  now  had  nearly  a  yeai"  within  which  to  make 
further  observations  as  to  the  characteristics,  habits,  and  customs  of 
the  natives  and  as  to  the  most  effective  methods  to  be  pursued  in 
reestablishing  and  maintaining  order,  and  begs  to  say  that  subsequent 
investigation    and    rcffection    have    confirmed    the   views    originally 


182  REPORTS    OF    THE    CIVIL    GOVERNMENT 

expressed.  The  militaiy  authorities  have  from  time  to  time  organized 
numerous  coinpanios  of  native  .scouts  conniiaiulcd  l)y  American  officers, 
•voiiroojitino-  about  0,500  men.  These  organizations  have  imiformly 
performed  faithful  and  effective  service,  and  we  are  informed  that 
there  has  not  been  a  single  instance  of  treachery  or  desertion.  A  fact 
so  signilicant  would  seem  to  put  at  rest  the  only  practical  question 
which  ever  arose  as  to  their  availability. 

The  commanding  general,  Division  of  the  Philippines,  has  announced 
it  to  be  his  purpose  gradually  to  withdraw  the  numerous  small  detach- 
ments of  regular  troops  stationed  in  nearly  all  the  towns  in  the  pacified 
provinces  in  the  archipelago  and  concentrate  them  in  larger  garrisons, 
and  to  use  them  only  when  called  on  to  suppress  general  insurrection 
or  brigandage  too  formidable  to  be  dealt  with  by  the  civil  authorities, 
a  course  which  we  think  eminently  wise.  The  dutj^  of  preserving 
peace  and  order  in  all  provinces  in  which  civil  government  has  been  or 
may  hereafter  be  established,  as  against  ladrones  and  ordinary  law- 
breakers, has  thus  been  remitted  to  the  civil  government. 

Although  there  is  no  armed  opposition  to  American  supremacy  in 
any  of  the  pacified  provinces,  there  has  naturally  followed  from  five 
years  of  revolution  and  unrest  much  of  brigandage  and  general  law- 
lessness, which  bears  heavily  on  the  masses  of  the  people  who  are 
peaceably  inclined  and  only  desire  to  till  their  fields  and  pursue  their 
usual  vocations. 

The  obvious  and  indeed  the  only  adequate  remedy  is  to  be  found  in 
the  establishment  of  an  efi^ective  police  force.  Under  the  provisions 
of  the  municipal  code  enacted  by  the  commission,  the  local  authori- 
ties were  empowered  to  organize  and  maintain  a  local  police  force  for 
the  respective  municipalities.  The  presidentes  and  councilors  of  the 
towns,  however,  are  all  Filipinos,  many  of  them  ex-insurrectos,  and  it 
was  not  believed  that  a  purely  native  force,  controlled  by  them,  could 
or  would  be  uniformly  efficient.  In  addition  to  this  many  of  the 
municipalities,  as  a  result  of  the  ravages  of  war  and  from  other  causes, 
were  too  poor  to  support  the  burden  thus  incurred. 

Furthermore,  the  municipalities  in  these  islands  are  not,  as  a  rule, 
composed  of  small  areas  of  territory  densely  populated,  as  in  the 
United  States,  but  are  of  considerable  extent,  in  many  instances  almost 
as  large  as  an  ordinary  county  in  the  United  States,  and,  finally,  there 
is  quite  a  considerable  territory,  generally  remote  and  in  the  moun- 
tains, which  is  not  included  in  any  municipality  and  in  which  lawless 
men  readil}^  find  refuge  and  a  base  of  operation. 

In  order  to  meet  these  conditions  and  to  establish  an  effective  and 
mobile  force  under  competent  and  reliable  direction,  adequate  at  all 
times  to  meet  any  emergency  that  might  arise,  the  commission  has 
enacted  a  law  establishing  the  Philippine  constabulary.     The  general 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  183 

scheme  of  this  act  is  to  create  an  insular  force  of  not  exceeding-  one 
hundred  and  fifty  men  for  each  province,  selected  from  the  natives 
thereof,  who  ma}^  be  mounted  in  whole  or  in  part,  and  who  are  placed 
under  the  immediate  command  of  one  or  more,  not  exceeding  four,  pro- 
vincial inspectors.  The  whole  body  is  placed  under  the  control  of  a 
chief  and  four  assistant  chiefs  of  constabulary.  The  islands  are  divided 
into  four  departments,  and  each  assistant  chief  is  in  immediate  charge 
of  a  department.  Full  powers  are  given  to  properly  arm,  equip, 
maintain,  and  discipline  the  force,  which  is  enlisted  for  two  years, 
unless  sooner  discharged.  They  are  declared  to  be  peace  officers,  and 
it  is  made  their  especial  duty  to  prevent  and  suppress  brigandage, 
insurrection,  unlawful  assemblies,  and  breaches  of  the  peace.  For 
this  purpose  the}^  are  given  authority  to  make  arrests,  but  are  required 
at  the  earliest  possible  moment  to  bring  the  prisoner  before  a  magis- 
trate for  examination. 

The  chief  of  constabular}^  is  empowered  temporarily,  in  case  of  exi- 
gency, to  combine  the  forces  of  two  or  more  provinces.  The  act  also 
provides  for  thorough  and  frequent  inspections  of  the  municipal  police 
by  the  provincial  inspectors,  under  rules  and  regulations  to  be  estab- 
lished by  the  chief  and  approved  by  the  civil  governor,  and  for  reports 
as  to  their  equipment,  efficiency,  and  generally  as  to  the  conditions  as 
regards  peace,  law,  and  order  which  prevail  in  the  several  municipali- 
ties. The  pi-ovincial  inspectors  are  also  given  authority  to  suspend 
and,  after  hearing,  to  remove  a  municipal,  policeman  for  inefficiency, 
dishonesty,  or  disloyalty. 

The  commission  has  asked  for  and  obtained  the  detail  of  Capt.  Henry 
T.  Allen,  Sixth  Cavalry,  U.  S.  A.,  as  chief,  and  of  Capt.  D.  J.  Baker, 
Twelfth  Infantry,  IT.  S.  A.,  as  first  assistant  chief.  These  gentlemen 
are  skilled  and  experienced  officers,  with  records  of  service  in  the  field 
which  demonstrate  their  fitness.  The  other  assistant  chiefs  and  the 
provincial  inspectors,  as  a  rule,  have  been  selected  from  ex-officers  and 
soldiers  of  the  Regular  and  Volunteer  armies  serving  in  the  Philippine 
Islands,  though  a  number  of  Filipinos  of  known  ability  and  fitness  have 
been  appointed  inspectors.  The  personnel  of  the  provincial  inspectors 
already  selected  is  unusually  good  and  efficient.  They  have  been  for 
several  weeks  past  engaged  in  three  provinces  in  recruiting  members 
of  the  force.  The  work  is  being  conducted  with  discrimination  and 
judgment,  and  it  is  believed  will  result  in  procuring  an  unusually  fine 
body  of  native  constabulary.  About  900  men  have  already  been 
enlisted. 

Although  the  organization  of  the  constabulary  is  only  partially  com- 
pleted, they  have  already  done  some  very  effective  service  in  breaking 
up  bands  of  ladrones  and  arresting  notorious  criminals.  In  the  mean- 
time the  organization  is  ))eing  perfected  rapidly  and  it  is  believed  will 


184  KKroUTS    OK    THE    CIXIL    (JOVKKNMKNT 

1)0  iidoquato  to  moot  the  roqiiironionts  of  the  situation  in  furnishinof 
full  protoftion  :uul  socurity  to  tlio  hnvahidiiio'  and  arrest  and  punisli- 
uiont  for  criminals. 

'Plio  ropoi't  of  tho  chief  of  tii<>  Phili])pines  constal)ulary  is  herewith 
liKnl.  marked  "Appendix  N." 

IIAILROADS. 

The  commission  has  been  directed  by  you  to  make  recommendations 
as  to  what,  in  its  judg-ment,  would  be  a  satisfactory  railroad  law  for 
the  Philippine  Islands.  The  consideration  of  this  matter  presents 
some  features  of  em])arrassment  and  ditficulty.  It  would  be  easy  to 
prepare  a  general  law  authorizing"  and  prescribing  a  fornuila  foi'  the 
creation  of  railroad  corporations,  giving  them  the  usual  rights  to 
locate  their  routes,  condemn  private  property,  and  thereafter  to  oper- 
ate their  roads  when  constructed;  but  tho  initial  and  fundamental 
cjuestion  which  presents  itself  is  whether  it  is  desirable,  in  view  of 
all  the  conditions  existing  here,  to  enact  such  a  law,  or  whether  fran- 
chises should  be  granted  to  specific  -corporations;  and,  if  the  latter 
polic}"  is  to  be  pursued,  whether  any  or  what  aid  should  be  extended 
to  them,  cither  in  donations  of  public  land,  guaranty  of  interest  on 
their  investment,  or  other  assistance.  The  great  importance,  and,  in 
ti'uth,  the  vital  necessity,  of  railroads  as  a  means  to  the  rapid  growth 
and  development  of  the  islands  in  all  directions,  and,  indeed,  to  the 
civilization  of  the  people,  is  so  obvious  that  it  needs  only  to  be  stated 
and  does  not  require  elaboration.  The  practical  question  is.  What  is 
the  speediest  and  most  economical  method  of  bringing  about  their 
construction? 

At  an  early  stage  in  the  era  of  railroad  building  in  the  United  States, 
when  our  population  was  comparatively  small  and  widely  separated, 
when  capital  was  less  plentiful,  when  the  cost  of  construction  and 
operations  of  railroads  was  much  greater,  and  the  return  upon  the 
investment  was  more  problematic  than  in  more  recent  times,  it  was  the 
usual  and  almost  invariable  course  for  tho  State  or  National  govern- 
ments to  grant  special  charters  to  railroad  corporations,  containing 
exemptions  from  taxation  and  other  valuable  concessions,  and,  in  addi- 
tion, to  assist  them  by  subscriptions  to  their  capital  stock,  donations  of 
public  land,  and  loans  of  bonds,  varying  in  extent  with  the  different 
circumstances  and  situations.  Undoubtedly  in  many  instances  the 
franchises  and  subsidies  thus  given  were  improvident  and  unwise  and 
resulted  in  heavy  losses  to  all  concerned.  It  ma}"  be  fairl}"  concluded, 
however,  that,  as  a  whole,  the  policy  was  wise  at  the  time,  and  has  been 
a  potent  factor  in  the  luiexampled  growth  and  progress  of  the  Am.^ri- 
can  people.  It  is  a  fact,  however,  that  for  man}'  years  there  has  been 
in  the  United  States  a  strong  and  increasing  opposition  to  the  granting 
of  public  aid  in  any  form  to  corporate  enterprises  of  this  or  any  other 


OF    THE    PHILIPPINE    ISLANDS,    li)0()-l!tO;5,  185 

kind.  Whether  this  opposition  is  duo  to  an  exaggeration  of  the  losses 
incurred,  a  faihxre  to  recollect  the  benefits  which  have  accrued,  dissatis- 
faction at  seeing-  great  fortunes  acciuiuilated  by  private  individuals 
thereby,  or  the  feeling  that  these  enterprises  are  no  longer  experimen- 
tal, and  that,  therefore.  Government  aid  is  unnecessary,  or  all  in  combi- 
nation, need  not  be  considered.  Whatever  the  cause,  the  general  policy 
has  been  of  late  years  to  withhold  the  granting  of  special  privileges  or 
State  aid  to  railroads  or  other  corporate  enterprises.  In  nearly  all  of 
the  States  of  the  Union,  it  is  believed,  there  are  constitutional  prohibi- 
tions against  such  action.  So  enormous  has  been  the  increase  and 
accumulation  of  every  form  of  wealth  and  of  individual  capital  seeking 
investment  in  the  United  States  that  any  really  meritorious  scheme 
finds  backing. 

'  Were  the  situation  in  the  Philippine  Islands  even  approximately 
the  same  as  in  the  United  States,  we  would  not  hesitate  to  recommend 
the  enactment  of  a  general  law  permitting  railroad  corporations  to  be 
formed  for  the  purpose  of  building  lines  wherever  the  projectors  might 
determine,  the  State  imposing  no  burden,  conferring  no  gratuities, 
and  leaving  them  to  work  out  their  destiny  in  their  own  way.  But, 
unfortunatel}^,  the  conditions  here  seem  to  us  radically  diti'ereut  from 
those  which  now  obtain  in  the  United  States  and  moi'e  nearly  resem- 
ble those  which  existed  half  a  century  ago.  The  remoteness  of  these 
islands  from  the  (;enters  of  civilization,  and  the  consequent  lack  of 
knowledge  as  to  their  resources  which  generally  prevails,  and  their 
unsettled  and  disturbed  condition  conspire  to  make  capitalists  slow  to 
make  investments  here.  Moreover,  among  those  well  informed  there 
is  a  feeling  that  the  element  of  risk  of  ultimate  loss  is  somewhat  greater 
here  than  elsewhere,  having  in  view  future  possible  contingencies. 

It  is  believed  by  the  commission,  as  well  as  by  other  persons  who 
have  investigated  the  subject  and  are  cognizant  of  the  situation,  that 
there  are  at  least  two  projected  lines  of  railroad  in  northern  Luzon 
which,  if  constructed,  would  pay  well  from  the  beginning  and  ulti- 
mately prove  very  profital)le.  Others  probabl}^  would  not  pay  well  for 
a  number  of  years  to  come;  but  even  as  to  the  former  only  the  test  of 
experience  can  determine. 

We  have  frequently  set  forth  or  referred  to  the  wonderful  natural 
resources  and  richness  of  these  islands.  Nature  has  done  everything, 
but  man  has  done  very  little;  the  field  is  inviting,  but  it  is  in  a  virgin 
state.  The  country  is  just  emerging  from  revolution;  most  of  the  peo- 
ple are  poor  and,  l)oth  b}^  reason  of  climatic  causes  and  lack  of  proper 
stimulus,  are  not  very  industrious  in  their  habits.  The  bulk  of  the 
population  at  this  time  is  found  comparatively  close  to  the  seashore 
and  is  to  a  limited  extent  now  ena})led  to  carry  on  commerce  through 
the  medium  of  vessels  engaged  in  the  coastwise  trade. 

The  railroads  most  imperatively  needed  are  those  which  will  peue- 


180  TIEPORTS    OF    THE    CIVIL    aOVERlSlMENT 

tnito  and  open  up  tho  ijitorior  of  the  o-roat  islands  of  I^iuzon  and  Min- 
danao, and  thoivhv  make  possil)lc  the,  development  of  their  great 
natural  mineral,  timber,  and  agricultural  wealth.  Considering  the 
topography  of  these  two  islands,  railroads  should  be  located  not  only 
with  reference  to  present  returns  but  also  with  regard  to  future  needs. 

Taking  into  consideration  the  foregoing,  we  are  doul)tful  whether 
cai)ital  for  investment  in  railroads  will  speedily  tind  its  way  here  unless 
the  Government  offers  some  special  inducement.  So  far  as  relates  to 
the  island  of  Luzon,  about  1,000  miles  of  railroad  would  meet  all  rea- 
sonable demands  for  many  years  to  come,  and  could  be  built  at  a  prob- 
able cost  of,  say,  $35,000,000.  This  would  include  a  trunk  line  of  about 
600  miles  in  length,  extending  from  one  end  of  the  island  to  the  other; 
an  extension  of  the  present  Manila  and  Dagupan  Railroad  northward, 
sa}^,  about  200  miles;  an  east  and  west  line,  beginning  at  Manila, 
from  76  to  100  miles  in  length;  a  line  from  Dagupan  to  Benguet,  about 
55  miles  in  length,  and  perhaps  two  or  three  other  short  feeders  to  the 
main  central  line. 

As  stated  in  our  last  report,  the  island  of  Mindanao,  with  an  area  of 
something  more  than  36,000  square  miles,  except  along  its  littoral,  is 
practicall}^  terra  incognita.  Observations  made  of  the  countrj^  along 
its  coast,  short  excursions  inland,  and  the  reports  from  Jesuit  mis- 
sionaries and  a  few  Americans  who  have  penetrated  into  the  remote 
sections  of  the  island  lead  to  the  conclusion  that  it  is  in  soil,  hard  wood, 
and  minerals  perhaps  the  richest  island  in  the  group;  but  it  is  almost 
wholly  undeveloped  and  principally  inhabited  by  Moros  and  other 
non-Christian  tribes.  It  is  difficult  to  state  with  any  degree  of  accu- 
rac}'  the  number  of  miles  of  railroad  immediatel}^  needed  for  opening 
up  this  island.  It  is  much  more  compact  in  shape  than  the  island  of 
Luzon  and  probably  500  miles  would  meet  every  requirement  of  the 
immediate  future. 

It  is  not  to  be  expected,  from  what  has  already  been  said,  that  rail- 
roads in  this  island  could  at  once  be  made  profitable,  and  that  capital, 
without  some  special  inducement  or  guaranty,  could  be  made  avail- 
able for  their  construction. 

It  seems  to  us,  therefore,  after  a  careful  survey  of  the  entire  sub- 
ject, that  the  commission,  or  whatever  insular  government  is  estab- 
lished here  by  the  Congress,  should  have  vested  in  it  the  discretionary 
power  to  grant  special  charters  of  incorporation  for  the  construction 
of  railroads,  subject  to  the  final  approval  of  the  President.  Authority 
should  also  be  given  to  guarantee  interest  on  the  investments,  or  to 
make  donations  of  public  lands  for  that  purpose,  or  both.  It  is  fully 
understood  that  the  exercise  of  such  powers  involves  the  possibility  of 
abuse,  consequent  loss  to  the  public,  and  injury  to  American  prestige. 
If  the  commission  is  to  be  continued  and  is  to  be  vested  with  these 
powers,  it  appreciates  the  fact  that  much  responsibility^,  great  labor, 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  187 

and  perhaps  adverse  criticism,  will  result,  from  which  it  would  will- 
ingly be  relieved.  It  is  felt,  however,  that  a  matter  of  such  vital 
importance  should  be  discussed  from  an  entirely  impersonal  stand- 
point, and,  if  its  honest  judgment  is  asked  for  it  should  be  frankly 
given. 

Assuming  that  the  authority  to  make  such  concessions  is  given  as 
recommended,  it  is  thought  well  to  give  the  views  of  the  commission 
as  to  whether  it  is  preferable  to  adopt  a  general  policy  of  guaranteeing 
interest  on  the  amount  invested,  or  of  making  a  grant  of  lands  from 
the  public  domain.  Plausible  arguments  may  be  advanced  both  for 
and  against  each  as  compared  with  the  other.  In  favor  of  land  grants 
it  may  be  said  that  the  cession  of  even  a  considerable  portion  of  the 
public  lands  involves  no  real  loss  to  the  Government  or  people;  that  as 
matters  stand  the  lands,  because  of  their  inaccessibility,  have  little  or 
no  present  market  value  and  can  not  be  utilized  for  an}'  purpose.  The 
construction  of  railroads  would  open  them  up  to  settlement  and  devel- 
opment, and  thereby  give  them  value.  Whilst  this  would  reimburse 
the  corporation  for  its  outlay,  it  would  at  the  same  time  add  to  the 
general  wealth  and  taxables  of  the  country,  and  would  also  make  acces- 
sible other  portions  of  the  public  domain  not  donated,  thereby  bring- 
ing them  into  market  and  making  them  available  for  settlers  and  other 
purposes.  It  may  be  further  stated  that  such  grants  would  be  most 
attractive  to  capitalists,  because,  assuming  that  the  lands  granted 
approximated  the  amounts  given  the  Pacific  railroads  by  the  Govern- 
ment of  the  United  States,  their  proceeds,  when  sold,  would  more  than 
pay  the  cost  of  building  the  road. 

As  opposed  to  this  consideration,  it  may  be  stated  that  there  is  always 
much  popular  prejudice  against  making  gifts  to  private  individuals  or 
corporations  of  public  property,  however  considerable  may  be  the 
benefit  accruing  to  the  Government.  There  is  always  the  feeling  that 
such  gifts  are  usually  the  result  of  favoritism  or  other  improper  influ- 
ence, and  that  Government  lands  ought  to  be  held  for  the  benefit  of 
home  seekers.  Without  entering  into  a  discussion  of  the  soundness 
of  this  prejudice,  the  fact  that  it  exists  should  not  be  overlooked  and 
should  be  reckoned  with. 

Again,  it  is  said  that  a  policy  which  secures  the  construction  of 
needed  railroads  without  parting  with  Government  lands  gives  to  the 
latter  the  benefit  of  their  increased  value  instead  of  to  a  few  individu- 
als. Another  objectionable  feature  to  be  considered  is  the  chaotic  con- 
dition of  all  land  titles  in  these  islands  and  the  consequent  difficulty  of 
obtaining  information  as  to  what  land  belongs  to  the  Government  and 
what  to  private  individuals.  As  already  stated,  there  has  never  been 
any  Government  survey  of  the  lands  of  the  islands.  Private  holdings 
are  frecjuently  ])ased  on  Spanish  grants  and  judicial  proceedings,  but 
far  more  often  on  long-continued  possession  or  claim  of  title.     But, 


188  REPOKTS    OK    TIIK    CIVII;    (JOVERNMENT 

whctlier  dorivod  frdni  the  one  source  or  the  other,  there  is  much  vague- 
ncijs  as  to  boundary  lines.  It  would  l)e  difficult,  without  such  a  survey, 
for  the  insular  authorities  to  locate  the  lands  so  to  be  granted.  To 
give  railroads  a  roving  conunission  to  locate  a  given  number  of  acres 
on  any  of  the  public  lands,  would  not  only  be  objectionable  because  it 
would  give  them  the  benetitof  picking  and  choosing  the  most  valuable 
land,  but  it  would  bring  them  into  collision  witii  private  claimants, 
which  might  produce  a  bad  impression  on  the  Filipino  mind  as  to  the 
rectitude  of  our  intentions. 

Experience,  moreover,  in  the  United  States  has  shown,  when  this 
policy  has  been  pursued,  even  when  surrounded  with  most  elaborate 
and  stringent  conditions,  and  there  has  been  a  failure  to  comply  Avith 
the  obligation  to  build  their  roads  for  one  reason  or  another,  that 
years  have  elapsed  and  prolonged  litigation  ensued  before  the  lands 
were  declared  forfeited  and  reclaimed. 

The  advantage  of  adopting  the  polic)'^  of  the  Government  guarantee- 
ing a  low  rate  of  interest  lies  in  the  fact  that  it  presents  to  men  of 
large  means,  seeking  a  permanent  and  safe  investment,  an  attractive 
opportunity  for  obtaining  it;  because  the}^  are  not  only  sure  of  a  cer- 
tain, even  if  not  large,  interest  on  their  money,  but,  in  addition,  of  the 
prospect  of  a  larger  return  in  the  increased  earnings  of  the  road  aris- 
ing from  the  growth  and  prosperity  of  the  country  tributary  to  it. 
Secondly,  the  Government  would  by  this  course  retain  title  to  its  lands 
and  be  enabled  to  distribute  them  among  actual  settlers  at  prices  which 
would  be  reasonable  to  them  and  yet  remunerative  to  it.  Thirdly,  the 
fact  that  the  investment  and  the  return  thereon  were  absolutely  certain 
would  produce  competition  between  capitalists  and  enable  the  Govern- 
ment to  make  more  advantageous  terms  as  to  rates  for  the  carriage  of 
freight  and  passengers,  length  of  franchise,  right  of  purchase  by  the 
Government,  division  of  profits,  limitations  as  to  salaries  and  expenses, 
provisions  for  Government  supervision,  etc.,  etc.  Fourthly,  it  would 
enable  the  Government  to  determine  the  location  of  the  various  lines 
after  taking  into  consideration  both  strategic  conditions  and  the  ulti- 
mate advantages  to  the  general  public,  rather  than  the  immediate 
income  to  be  earned  b}^  the  company. 

The  only  objection  which  can  be  advanced  against  this  policy  is  that 
the  government  would  burden  its  revenues  with  a  fixed  charge.  We 
believe  that  $.55,000,000,  iuid  possibly  less,  would  be  amply  sufficient 
to  complete  all  the  trunk  lines  presently  needed  in  the  islands  of  Luzon 
and  Mindanao.  We  are  further  of  the  opinion  that,  with  the  guaranty 
of  the  insular  government  to  pa}^  3  per  cent  interest,  the  necessar}^ 
capital  for  their  construction  could  readil}^  be  secured.  The  insular 
government  would  thus  become  responsible  annuall}'^  for  $1,650,000, 
which  would  be  a  charge  upon  its  revenues  and  which  it  would  have  to 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  189 

pay,  provided  all  the  lines  were  able  only  to  earn  their  operating 
expenses.  Even  were  this  true,  it  is  believed  the  increased  taxable 
values  thereby  created,  to  say  nothing  of  the  saving  in  the  cost  of 
transportation  of  troops,  civil  officials,  mails  and  government  freights 
would  probably  more  than  meet  the  outlay.  It  is  not,  however,  within 
the  range  of  probability  that  properly  located  railroads  would  only 
pay  operating  expenses.  On  the  contrary,  it  is  believed  that  under 
wise  management,  as  already  stated,  several  of  the  lines,  perhaps  half 
of  them,  would  pay  from  the  beginning  as  much  as  the  government 
guaranty,  and  would  probably  do  better  than  that,  and  that  ultimately 
all  would  earn  as  much  as,  or  more  than,  the  government  guaranty. 

It  may  be  well,  as  an  interesting  contribution  to  this  discussion,  to 
call  attention  to  the  circumstance  that  all  of  the  trunk  lines  of  the 
East  Indian  Railroad  district  were  constructed  upon  this  basis.  Under 
the  administration  and  direction  of  Lord  Dalhousie,  the  Indian  gov- 
ernment thus  brought  to  its  aid  English  capital  and  within  a  very  few 
years  there  were  built  a  number  of  great  trunk  lines,  carefully  and 
intelligently  located  with  reference  to  military  and  commercial  neces- 
sities, which,  besides  advancing  marvelously  the  commerce  and  wealth 
of  India,  settled  for  all  time  the  supremacy  of  the  English  in  that 
great  empire.  The  rate  of  interest  was  in  that  day  much  higher  than 
now  and,  accordingly,  the  government  guaranteed  a  minimum  rate  of 
5  per  cent,  with  the  proviso  that,  after  earning  that  sum,  the  excess 
should  be  equally  divided  between  the  company  and  the  government. 
The  right  of  purchase  was  reserved  to  the  government  after  the  lapse 
of  a  term  of  years  and  the  right  of  governmental  representation  and 
supervision  was  provided  for.  The  predictions  made  by  Lord  Dal- 
housie that  this  policy  would  cost  the  government  nothing  and  that  it 
would  give  an  extraordinary  impetus  to  domestic  and  foreign  trade, 
and  especially  to  the  exchanges  between  England  and  India,  were 
more  than  verified  and  did  more  for  the  advancement  of  India  in  a 
decade  than  had  been  accomplished  in  the  preceding  one  hundred 
years. 

It  will  be  seen  from  what  has  been  said  that  the  commission,  if  it 
had  authority  to  act,  would,  wherever  necessar}^  to  secure  the  desired 
railroads — certainly  as  to  the  island  of  Luzon  and  probably  as  to  Min- 
danao— prefer  to  secure  the  capital  required  for  construction  by  guar- 
anteeing thereon  a  low  rate  of  interest.  It  may  turn  out,  however, 
as  to  the  latter  island  and  also  as  to  the  islands  of  Paragua  and  Min- 
doro,  which  are  much  in  the  condition  of  Mindanao,  that  this  course 
would  not  be  best  or  even  feasible,  and  that  a  subsidy  in  the  form  of  a 
donation  of  lands,  or  both  a  guaranty  of  interest  and  a  donation  of 
lands,  might  be  in  the  pul)lic  interest.  In  these  last  named  islands  the 
amount  of  land  held  by  the  Christian  natives,  as  compared  with  the 
23181—04 13 


190  REPORTS    OF    THE    ("IVIL    (iOVKRNMENT 

lands  of  the  entire  islands,  is  almost  nominal.  The  datos  or  chiefs  of 
the  ^loro  and  other  non-Christian  tribes  claim,  as  we  are  informed,  a 
sort  of  o-eneral  ownership  of  the  lands  within  their  respective  jurisdic- 
tion, their  subjects  having  no  separate  interests  therein.  What  shall 
be  done  as  to  the  lands  thus  held  is  a  matter  requiring  careful  thought 
and  delicate  handling.  It  is  believed  that  the  chiefs  can  be  dealt  with 
on  a  satisfactory  basis,  if  it  is  deemed  advisable  to  open  negotiations 
with  them.  Such  a  step  would  be  undoubtedly  necessary  before  any 
disposition  of  lands  was  made,  as  all  room  for  friction  or  doubt  as  to 
the  validity  of  the  government's  title  should  first  be  removed. 

In  recommending  that  it  be  given  power  to  grant  franchises,  make 
donations  of  land  or  guarantee  interest,  as  above  set  forth,  it  should 
not  be  understood  that  the  commission  would  in  every  case  and  with- 
out exception  exercise  all  of  the  powers  thus  vested  in  it.  The  aim  of 
the  commission  would  be  to  secure  needed  lines  of  railroad  upon  the 
best  possible  terms.  It  might  come  to  pass  that  one-half  the  lines  in 
Luzon  might  be  built  without  government  aid  of  any  sort,  and  fur- 
ther investigation  might  develop  that  it  is  not  best  at  once  to  begin 
railroads  in  Mindanao  and  the  other  southern  islands  referred  to.  It 
is  also  within  the  bounds  of  possibility  that  competition  between  capi- 
talists might  result  in  offers  more  favorable  than  are  now  anticipated. 

BUREAU  OF  COAST  GUARD  AND  TRANSPORTATION. 

The  difficulties  of  communication  between  the  various  points  in  the 
islands,  already  referred  to,  is  a  serious  obstacle  to  the  efiicient  admin- 
istration of  all  branches  of  the  Government.  When  it  is  considered 
that  in  some  cases  a  month  or  more,  in  others  weeks,  and  in  nearly 
every  case  days,  must  elapse  in  going  from  Manila  to  the  various 
provincial  capitals,  and  vice  versa,  the  extent  of  this  difficulty  can,  in  a 
measure,  be  understood. 

It  is  almost  impossible,  under  such  conditions,  for  the  various  depart- 
ments of  the  insular  government  to  keep  in  touch  with  their  subordi- 
nates and  intelligently  direct  their  operations,  while  their  remoteness 
and  inaccessibility  tend  to  generate  in  them  a  lack  of  that  sense  of 
immediate  responsibility  so  essential  to  systematic  work  and  discipline. 
Aside  from  this,  and  not  an  inconsiderable  item,  the  expenses  of  all 
the  departments  are  largely  increased  by  this  circumstance.  Especially 
are  the  offices  of  the  auditor,  treasurer,  chief  of  constabulary,  col- 
lector of  customs,  the  light-house  service,  the  post-office,  the  insular 
purchasing  agent  and  the  various  provincial  boards  seriously  handi- 
capped in  their  operations  for  lack  of  transportation. 

From  a  political  standpoint  also  it  is  most  desirable  that  the  people 
in  all  the  islands  should  feel  themselves  alwaj^s  in  close  relations  with 
the  capital  and  the  central  government,  and  understand  that  the  latter 
has  a  livelj"  interest  in  their  affairs,  is  fully  informed  as  to  what  is 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  191 

going  on,  can  speedily  reach  them  in  any  emergency  and  is,  in  a  sense, 
always  present. 

It  seemed  to  the  commission,  therefore,  absolutely  indispensable 
that  some  efficient  transportation  system  should  be  devised.  The 
matter  was  referred  to  Commissioners  Worcester  and  Wright,  as  a 
committee,  with  directions  to  report  a  plan  for  furnishing  water  trans- 
portation for  postal,  revenue,  police  and  general  provincial  purposes. 
They  were  directed  to  report  upon  the  number  of  vessels  needed,  to 
mark  out  their  routes,  to  indicate  the  probable  cost  and  the  cheapest 
and  most  expeditious  means  of  procuring  them  and,  finally,  as  to  the 
desirability  of  establishing  a  bureau  of  navigation,  with  such  other 
details  as  might  suggest  themselves. 

After  consultation  with  naval  officers  and  the  managers  of  insular 
transportation  lines  and  others  having  familiarity  with  the  subject,  and 
after  careful  investigation,  the  committee,  on  the  20th  day  of  September 
last,  filed  their  report,  in  which  they,  in  substance,  recommended  that, 
for  the  purpose  of  maintaining  a  satisfactory  communication  between 
the  various  provincial  capitals  and  coast  towns  and  to  prevent  smug- 
gling and  the  landing  of  contraband  goods,  a  fleet  of  21  small  steam 
vessels  should  be  purchased  as  soon  as  possible.  They  recommended 
that  the  insular  coast  line  should  be  divided  into  21  circuits,  marked 
out  with  peculiar  reference  to  establishing  communication  between 
each  provincial  capital  and  the  coast  towns  of  the  several  provinces, 
these  circuits  being  connected  and  a  vessel  provided  for  each  circuit,  so 
that  there  would  be  a  continuous  line  of  communication  around  all 
the  islands.  The  average  length  of  the  circuits  was  to  be  651  miles. 
The  type  of  vessel  recommended  was  one  having  a  length  of  about  110 
feet,  a  maximum  speed  of  10  knots  and  an  economical  speed  of  8 
knots  per  hour.  They  were  to  be  able  to  keep  the  sea  in  any  weather 
and  at  the  same  time  of  sufficiently  light  draft  to  enter  nearly  all  the 
ports  of  the  islands.  Each  was  to  be  provided  with  a  searchlight  and 
a  small  armament. 

It  was  further  recommended  that  2  small  stern-wheel  steamers,  of 
not  more  than  2i  feet  draft,  be  provided,  one  to  run  on  the  Cayagan 
River,  North  Luzon,  from  Aparri  to  Ilagan,  and  the  other  on  the  Rio 
Grande  del  Mindanao  and  the  lake  system  connected  with  that  river. 

It  was  stated  that  conferences  with  naval  experts  and  representatives 
of  shipbuilders  in  China  and  Japan  developed  the  fact  that  these  ves- 
sels could  all  l)c  built  and  delivered  within  from  eight  to  eighteen 
months,  at  a  cost  of  about  $10,000  each. 

It  was  finally  recommended  that  a  bureau  of  navigation  be  estab- 
lished for  the  purpose  of  directing  the  operations  of  these  vessels. 

The  commission,  after  carefully  considering  this  report,  was  im- 
pressed with  the  soundness  of  its  conclusions,  but  inasmuch  as  the 
programme  was  rather  an  ambitious  one  and  involved  the  outlay  of  a 


192  REPORTS    OF    THE    CIVIL    GOVERNMENT 

Itirg-e  sum  of  money,  thouglit  it  best  to  submit  their  views  to  you 
before  enacting  an}'^  laws  on  the  subject. 

TTiivini'-  received  your  approval,  it  was  thouofht  best  to  esta])lish  the 
buretui  not  only  for  the  purpose  of  transportation  and  conununication 
as  above  outlined,  but  also  to  place  under  its  control  the  light-house 
service  and  the  coast-guard  service.  Accordingly,  a  bill  has  been 
drafted  creating  the  bureau  of  coast  guard  and  transportation.  It  is 
therein  provided  that  the  bureau  shall  be  organized  into  three  divi- 
sions, the  first  relating  to  the  maintenance  and  operation  of  the  ves- 
sels under  the  charge  of  the  bureau,  the  second  to  the  construction  of 
light-houses  and  the  third  having  charge  of  the  illumination,  inspection 
and  superintendence  of  light-houses,  beacons,  buo3^s,  and  so  forth. 
It  is  made  the  duty  of  the  chief  of  bureau  to  cooperate  with  the 
collector  of  customs  in  giving  the  proper  service  in  his  department 
and  to  provide  for  the  proper  accommodation  of  revenue  agents  upon 
all  vessels.  The  chief  of  bureau  is  also  required  to  provide  for  the 
transportation,  on  official  business,  of  all  insular  officials  and  their  sub- 
ordinates and  of  all  goods  and  freights  of  all  insular  departments  and 
their  respective  bureaus  and  also  to  transport  municipal  officials,  when 
traveling  on  public  business.  The  chief  of  bureau  is  also  required  to 
cooperate  with  the  director-general  of  posts  in  carrying  the  mails 
between  the  various  points  in  the  islands,  under  such  regulations  and 
schedules  as  w^ill  make  the  postal  service  most  effective,  and  to  see  that 
all  agents  of  the  postal  department  have  accommodations  on  vessels, 
as  directed  by  the  director-general  of  posts.  The  chief  of  bureau  is 
also  directed  to  cooperate  with  the  chief  of  constabulary  in  the  trans- 
portation of  provincial  inspectors  and  constabulary  and  of  quarter- 
master and  commissary  stores  as  the  public  service,  in  the  opinion  of 
the  chief  of  constabulary,  requires. 

It  will  be  observed  that  the  commission  has  thus  consolidated  into 
one  bureau  transportation,  revenue  service  and  light-house  service. 
It  is  aware  that  there  is  no  necessary  relationship  between  these  sev- 
eral departments  and  that  the}^  are  not  thus  grouped  in  the  United 
States.  Its  first  impression  was  to  follow  closely  the  system  as  adopted 
by  the  United  States  Government,  but  after  giving  the  matter  careful 
thought,  it  was  believed  that  equal  results  could  be  reached  at  a  much 
less  cost  b}"  the  method  adopted. 

It  is  the  purpose  of  the  commission  to  ask  from  the  admiral  com- 
manding the  United  States  naval  station  in  these  waters  the  detail  of 
Commander  A.  Marix,  U.  S.  N.,  as  chief  of  bureau,  and  also  to  request 
the  detail  of  two  other  competent  naval  officers  as  heads  of  the  divi- 
sions of  transportation  and  maintenance  of  light-house  service  and 
from  the  general  commanding  the  army  in  the  Philippines  a  compe- 
tent engineer  officer  to  take  charge  of  the  department  of  light-house 
construction. 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  19'3 

The  bureau  has  been  placed  under  the  general  control  of  the  secre- 
tary of  commerce  and  police. 

POSTAL   SERVICE. 

The  department  of  posts  during  the  past  year  has  steadily  extended 
its  operations,  so  as  to  meet  every  reasonable  demand  made  upon 
it.  The  service  has  been,  all  things  considered,  very  satisfactory  and 
creditable. 

Outside  of  the  commercial  ports,  the  Army  and  Navy  and  American 
civilians,  there  is  as  yet  very  little  demand  for  a  frequent  mail  service. 
Doubtless  with  the  general  restoration  of  peace  and  the  return  of  nor- 
mal times,  the  Filipinos,  when  the  opportunity  is  offered,  will  learn  to 
better  appreciate  and  understand  the  value  of  a  regular  and  frequent 
mail  service. 

Under  the  Spanish  regime  the  postal  department  was  conducted  in 
the  most  primitive  way.  All  coastwise  vessels  were  required  to  carry 
the  mails  without  compensation,  and  presidentes  of  towns  were  required 
to  act  as  postmasters  and  to  distribute  and  forward  the  mails  without 
cost  to  the  Government.  It  can  be  readily  understood,  without  further 
elaboration,  how  effective  such  a  service  would  be. 

The  introduction  of  a  cheap  and  regular  mail  service,  along  modern 
lines,  will  undoubtedly  prove  to  be  here,  as  it  has  everywhere  else, 
of  immense  benefit  to  the  people,  and  will  gradually  become  self- 
supporting. 

The  department,  with  the  concentration  of  troops  into  larger  garri- 
sons, will  no  longer  be  able  to  utilize  the  Quartermaster's  Department 
of  the  Army  to  carry  its  mails  nor  army  officers  to  act  as  local  postmas- 
ters, but  will  be  compelled  to  establish  routes  and  to  appoint  post- 
masters of  its  own.  The  lack  of  good  roads  and  transportation  facil- 
ities will  no  doubt  prove  in  the  future,  as  it  has  done  in  the  past,  a 
serious  drawback  to  anything  like  a  really  up-to-date  service.  This  is 
not  onl}^  true  as  to  interior  points,  but  applies,  to  a  modified  extent,  to 
towns  upon  the  coast,  owing  to  the  irregularity  with  which  vessels  run. 
It  is  believed,  however,  that  with  the  establishment  of  the  govern- 
mental transportation  S3'stem  hereinbefore  referred  to  and  the  utiliza- 
tion, to  a  considerable  extent,  of  the  services  of  provincial  inspectors 
of  constabulary,  school-teachers  and  other  American  oflicials  as  post- 
masters a  fairly  efficient  service  can  be  provided.  Until  railroads  are 
built  and  highways  improved,  it  is  of  course  impossible  to  hope  for  an 
ideal  service. 

For  the  past  fiscal  year,  the  expenditures  exceeded  the  receipts  by  the 
sum  of  §36,470.06.  It  was  inevitable  that  there  should  have  been  a 
deficit,  but,  all  things  considered,  it  is  remarkabh'  small.  Undoubtedly 
it  will  be  necessary  for  several  years  to  come  to  increase  the  appro- 
priation  for   this   department  to   meet  its   needs  and  it  is  equally 


194  REPORTS    OK    TIIK    riVTL    (JOVKRNMENT 

certain  that  the  yearlj^  deficits  for  a  considoral)le  period  in  the  future 
will  steadily  increase  in  proportion  as  the  system  is  extended  and 
perfected.  As  the  masses  of  the  people  become  better  educated,  how- 
ever, and  with  the  general  growth  and  development  of  all  forms  of 
social,  industrial,  and  commercial  activities,  which  must  come  with  the 
establishment  of  American  methods  in  government  and  business,  the 
service  will  be  more  extensively  patronized,  and  the  department  ought 
to  become  gradually  self-sustaining. 

The  report  of  the  director-general  of  posts  for  the  past  year  is  here- 
with filed,  marked  "Appendix  O." 

HARBOR   IMrROVEMENT. 

The  last  report  of  the  commission  set  forth  the  importance  of  improv- 
ing the  harbor  of  Manila.  It  further  mentioned  the  fact  that  the 
Spanish  Government  had  prepared  elaborate  plans  and  specifications 
for  this  work  and  had  partially  carried  them  into  execution.  It  was 
further  stated  that  the  chief  engineer,  division  of  the  Philippines,  had 
these  plans  in  his  possession  and  had  carefully  examined  them  and 
pronounced  them  to  be  well  adapted,  with  some  minor  modifications, 
to  the  end  in  view,  and  that,  in  his  judgment,  it  would  cost  a]>out 
$2,500,000,  gold,  to  carry  out  the  project  in  its  entirety.  It  was  fur- 
ther stated  that  the  commission  had  enacted  a  law  appropriating 
$1,000,000,  gold,  for  the  purpose  and  that  the  work  would  be  let,  after 
advertisement  both  here  and  in  the  United  States,  to  the  lowest  respon- 
sible bidder. 

The  chief  of  engineers,  after  consultation  with  other  experts,  has 
made  considerable  modification  of  the  original  Spanish  plans,  retain- 
ing, however,  their  most  salient  features.  The  commission  has  fur- 
ther legislated  so  as  to,  in  effect,  pledge  that  appropriations  would  be 
made  to  an  amount  not  exceeding  $2,000,000  additional  whenever  the 
same  should  be  necessary,  and  has  authorized  the  chief  of  engineers  to 
make  contracts,  within  that  limit,  for  the  entire  work.  In  pursuance 
of  this  act  he  has  gone  forward  and  after  duly  advertising,  both  here 
and  in  the  United  States,  as  he  was  required  to  do  by  the  terms  of  the 
act,  he  has  let  the  main  work  to  the  Atlantic,  Gulf  and  Pacific  Com- 
pany of  New  York  for  about  $2,150,000.  The  contractor  is  now 
engaged  in  collecting  here  the  necessary  outfit  for  the  vigorous  prose- 
cution of  the  work  and  will  begin  active  operations  within  the  next 
thirty  days. 

It  is  estimated  that  it  will  require  about  two  years  to  complete  the 
contract.  When  completed  Manila  will  have  a  commodious  and 
thoroughly  protected  harbor,  with  a  depth  of  30  feet.  This  will  enable 
vessels  of  the  largest  size  to  anchor  within  the  harbor  and  at  all  times 
to  safely  and  rapidly  discharge  and  take  on  cargo.  The  value  of  this 
improvement  to  the  commerce  of  the  islands  can  hardly  be  overestimated. 


OF   THE    PHILIPPINE    ISLANDS,   1900-190.'5.  195 

In  connection  with  the  improvement  of  the  harbor,  provision  is  also 
made  for  dredging  and  deepening  the  channel  of  the  Pasig  River,  so 
that  vessels  of  16  feet  draft  can  safely  enter. 

The  scheme  of  harbor  improvement  involves  the  reclamation  of 
about  150  acres  of  land,  which  will  be  properly  subdivided  into  lots 
and  it  is  believed  can  be  sold  or  leased  for  a  sum  which  will  largely 
reimburse  the  Government  for  its  whole  outlay. 

COAST  AND  GEODETIC  SURVEY. 

A  suboffice  of  the  United  States  Coast  and  Geodetic  Survey  was 
established  at  Manila  on  the  19th  day  of  September,  1900.  Up  to  this 
time  it  has  been  wholly  supported  by  remittances  from  the  chief  office 
at  Washington,  with  the  exception  that  the  commission  has  purchased 
and  fitted  up  a  steam  vessel  suitable  for  use  in  these  waters  and  turned 
it  over  to  the  suboffice  here. 

The  importance  of  a  full  and  accurate  survey  of  the  harbors  and 
waters  of  these  islands  need  not  be  enlarged  upon.  We  are  informed 
that  this  work  was  never  thoroughly  done  by  the  Spaniards,  there 
being  much  of  the  coast  and  many  of  the  harbors  about  which  little  is 
known,  and  such  work  as  has  been  bequeathed  to  us  by  them  is 
unreliable,  their  charts  oftentimes  proving  misleading  and  therefore 
dangerous. 

Surveys  have  been  made  under  the  direction  of  the  officer  in  charge 
of  the  office  here  of  quite  a  number  of  the  larger  and  more  important 
ports  of  the  islands,  but  much  remains  to  be  done  in  this  line.  Tidal 
observations  have  been  made  at  various  points  where  the  surve3^s  have 
been  executed  and  tidal  gauges  have  been  erected.  Astronomical 
observations  for  latitude  and  longitude  have  been  made  at  a  number  of 
important  points  in  pursuance  of  the  plan  to  determine  base  positions 
at  suitable  intervals  along  the  coast.  Information  has  also  been  col- 
lected as  to  the  variation  of  the  magnetic  needle  at  all  astronomical 
stations  established  by  the  office,  and  where  practicable  true  meridian 
lines  have  been  laid  out  and  marked  upon  the  ground. 

The  office  work  has  been  considerable,  involving  the  outfitting  and 
supplying  of  the  parties  in  the  field  who  were  engaged  in  carrying  on 
the  work  before  referred  to,  and  in  the  making  of  advance  editions  of 
charts  and  publishing  information  collected,  in  order  to  properl}^ 
inform  masters  of  vessels  plying  in  these  waters. 

A  few  weeks  since  there  was  submitted  to  the  commission  a  propo- 
sition from  the  Superintendent  of  the  United  States  Coast  and  Geodetic 
Survey  for  a  division  of  the  expense  of  carrying  on  the  work  in  these 
islands  upon  a  more  extensive  scale.  It  was  proposed,  in  substance, 
that  the  main  office  would  contribute  a  vessel  and  equipment  and  aii 
instrumental  outfit,  aggregating  in  value  about  $125,000,  and  would 
annually  pay  certain  salaries,  ruiniing  expenses,  repairs  and  equipment 


196  REPORTS    OK    THE    CIVIL    G<)VP:RNMENT 

of  vessels,  and  revision  and  publication  of  charts,  and  so  forth,  esti 
mated  to  amount  aimuallv  to  $S0,()()0,  upon  condition  that  the  insular 
g'overnment  would  furnish  three  small  steamers  and  would  pay  the 
running  expenses  and  repairs  of  these  vessels  and  other  office  and  field 
expenses,  which  it  was  estimated  would  amount  to  $180,000  per  annum. 
On  the  27th  day  of  September  last  the  conmiission  adopted  the 
following  resolution : 

Rexolred^  That  it  is  the  sense  of  the  commission  that  it  should  pay 
one-half  of  the  current  expenses  of  such  surveys,  provided  such  one- 
half  shall  not  exceed  180,000,  per  annum;  and  that  the  insular  govern- 
ment shall  furnish  and  equip,  m  addition  to  the  vessel  already  fur- 
nished, two  others,  not  to  exceed  in  cost  $66,000. 

It  is  believed  that  this  will  result  in  a  satisfactory  arrangement 
being  made  between  the  insular  government  and  the  United  States 
Coast  and  Geodetic  Survej^  Office,  by  which  the  work  of  the  latter  in 
the  islands  will  be  greatly  improved  and  enlarged. 

The  report  of  Mr.  G.  R.  Putnam,  of  the  office  at  Manila,  is  here- 
with filed,  marked  "Appendix  P." 

HIGHWAYS, 

The  first  law  enacted  by  the  commission,  pursuant  to  your  direction, 
was  one  appropriating  $1,000,000,  gold,  to  be  expended  for  the  con- 
struction of  roads,  primarily  for  strategic  purposes.  This  appropria- 
tion has  been  expended  under  the  direction  of  the  chief  engineer, 
Division  of  the  Philippines,  and,  we  have  no  doubt,  to  the  best  advan- 
tage. So  far  as  we  have  been  able  to  observe,  the  selection  of  the 
roads  for  construction  has  been  judicious  and  the  work  has  been  done 
in  a  thorough  and  substantial  manner. 

It  will  be  seen  by  an  inspection  of  act  No.  83,  which  provides  the 
machinery  for  the  organization  of  provinces,  and  which  has  already 
been  explained,  that  it  is  contemplated  that  the  general  work  of  road 
construction  shall  be  left  to  the  direction  of  the  supervisor  of  each 
province,  who  by  the  law  is  required  to  be  and  is  a  civil  engineer,  and 
that  the  expenses  thereof  shall  be  borne  either  by  the  provinces  or  the 
various  municipalities. 

The  only  road  which  has  been  put  in  course  of  construction  under 
the  immediate  direction  of  the  commission  is  that  extending  from  the 
town  of  Pozorubio  to  the  town  of  Baguio,  in  the  province  of  Benguet. 
The  reasons  why  the  commission  has  thought  it  best  to  assume  direct 
control  and  responsibility  for  the  cost  of  this  work  were  that  its  cost 
would  be  more  than  an}^  province  could  afi'ord,  and  that  it  was  intended 
to  give  convenient  access  to  the  highlands  of  Benguet,  in  which  it  is 
hoped  and  believed  ultimately  the  sanitarium  of  the  Philippines  will 
be  located. 

In  its  last  report  the  commission  gave  an  extended  account  of  this 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  197 

romantic  and  healthful  region  and  discussed  the  importance  of  speedily 
connecting  it  with  Manila  by  a  railway,  which  could  be  accomplished 
by  a  line  55  miles  in  length,  from  Dagupan  to  Baguio,  the  former 
being  the  northern  terminus  of  the  Manila  and  Dagupan  Railway,  now 
in  operation.  The  preliminary  survey,  at  that  time  being  made,  has 
been  completed  by  Capt.  Charles  W.  Mead,  a  competent  civil  engineer, 
and  now  city  engineer  of  Manila.  He  advised  us  that  it  would  be  nec- 
essar}^  to  build  a  highway  along  the  proposed  route  of  the  railway,  in 
order  to  enable  a  tinal  instrumental  survey  to  be  made,  and  that  this 
highway  would  also  be  useful,  if  not  indispensable,  when  the  railway 
was  put  in  course  of  construction.  Accordingly  the  requisite  appro- 
priation for  building  the  highway  was  made  and  the  work  put  in  charge 
of  Captain  Mead.  He  has  been  much  delayed  by  the  diiBculty  of  pro- 
curing the  labor  requisite  for  its  early  completion  and  several  months 
will  yet  elapse  before  it  is  finished.  It  is  being  constructed  in  the 
most  substantial  manner  and  will  be  useful  both  whilst  the  railway  is 
being  built  and  thereafter. 

ADMINISTRATION   OF  JUSTICE. 

At  the  date  of  the  last  preceding  report  of  the  commission,  a  certain 
number  of  courts  of  justices  of  the  peace  had  been  established  in  the 
capitals  of  some  of  the  provinces,  the  courts  of  first  instance  had  been 
established  in  the  provinces  of  Manila,  Pangasinan,  Cagayan,  Isabela, 
Cavito,  lloilo,  Pampanga,  Nueva  Ecija,  Ilocos  Norte,  Bataan,  Cebu, 
Bohol,  La  Union  and  Benguet,  and  a  supreme  court  for  the  islands  had 
been  organized.  Most  of  these  courts  had  been  organized  by  military 
orders  prior  to  September  1,  1900,  on  which  date  the  commission  first 
had  legislative  authority.  The  judges  and  justices  of  all  these  courts, 
except  the  supreme  court,  were  Filipinos.  In  the  supreme  court  the 
minority  were  Americans.  These  courts  had  not  been  established  as 
a  regular  system  for  the  administration  of  justice,  but  as  provisional 
and  temporary  expedients  to  meet  the  exigencies  arising  in  provinces 
where  civil  courts  could  be  of  utility.  They  were  unsatisfactory  and 
a  reorganization  of  the  whole  system  was  regarded  as  indispensable 
as  soon  as  such  action  could  properly  be  taken.  These  courts  had  not 
all  been  instituted  at  one  time,  but  had  gradually  been  brought  into 
being  as  rapidly  as  conditions  warranted.  Meanwhile,  pending  the 
reorganization  of  the  courts  and  the  enactment  of  improved  methods 
of  procedure,  several  laws  were  enacted  by  the  commission,  to  meet 
pressing  needs. 

On  the  21st  day  of  December,  1900,  act  No.  68  was  passed,  providing 
that  in  the  construction  of  acts  enacted  by  the  commission,  the  English 
text  should  govern;  but  that  in  obvious  cases  of  ambiguity,  o.nission 
or  mistake  the  Spanish  text  might  be  consulted  to  explain  the  English 
text. 


198  KKPOllTS    (W    TIIK    OTVIL    OOVKRNMKNT 

Oi\  the  l(»tli  (lay  of  Auti-ust,  IIXIO,  tlic  lion.  Antonio  Majorrois  do! 
Rosario,  judo'c  of  the  court  of  first  instance  of  tho  district  of  Binondo, 
in  the  city  of  Manila,  was  .suspended  from  the  further  performance  of 
the  duties  of  his  office  by  order  of  the  military  governor,  Maj,  Gen, 
Arthur  MacArthur,  for  alleged  malfeasance  in  oflice.  In  October, 
1900,  Judge  Majorreis  made  a  written  application  to  the  connnission, 
wherein  he  prayed  that  the  cause  of  his  suspension  might  be  inquired 
into  by  it  and  that  he  might  be  reinstated  in  office  or  l)e  permanently 
removed,  as  justice  might  require.  In  response  to  that  application, 
the  commission  set  apart  the  17th  day  of  December  for  the  purpose  of 
hearing  the  charges  against  Judg'e  Majorreis  and  his  defense,  and 
upon  that  day  and  subsequent  days  the  facts  which  led  to  his  suspen- 
sion from  office  were  fully  heard  on  due  notice  to  all  parties.  On  the 
5th  day  of  January,  1901,  the  commission  announced  its  decision,  that 
the  suspension  ordered  b}^  the  military  governor  on  the  10th  da}^  of 
August,  1900,  ought  to  be  made  permanent  and  that  the  judge  should 
be  removed  from  his  office  and  so  ordered.  It  was  found  as  a  fact 
that  in  the  executive  action  of  Regidor  v.  Hartman,  Judge  Majorreis 
had  rendered  a  final  judgment  for  $30,000  in  favor  of  the  plaintifi' 
and  had  issued  execution  against  the  Hongkong  and  Shanghai  Bank 
when  that  bank  was  not  a  party  to  the  action,  had  never  been  cited  to 
appear  and  protect  its  rights  and  the  judge  was  authentically  informed 
that  the  bank  denied  having  in  its  possession  any  funds  or  property 
belonging  to  Hartman  subject  to  execution,  and  when  its  efforts  to 
be  heard  in  vindication  of  its  rights  were  entirely  disregarded  and 
defeated  by  the  judge. 

The  fundamental  principle,  not  only  of  the  universal  sense  of  justice 
and  right,  but  also  of  every  civilized  system  of  jurisprudence,  that  no 
one  should  be  condemned  unheard,  and  that  judgment  should  not  be 
rendered  and  execution  should  not  issue  in  any  case  against  an3"one 
until  he  had  had  his  day  in  court,  had  been  completely  violated  by 
Judge  Majorreis,  and  that  violation  had  occurred  in  an  action  where 
great  pecuniary  interest  was  at  stake  and  where  redress  was  impossi- 
ble if  the  execution  ordered  by  him  had  been  enforced.  So  complete 
a  violation  of  fundamental  principles  as  to  shock  the  moral  sense  indi- 
cated such  a  shortage  of  moral  discrimination  and  such  a  disregard  of 
the  plain  difference  between  justice  and  injustice  that  it  was  consid- 
ered that  his  continuance  in  office  would  be  highl}^  detrimental  to  the 
good  name  of  the  courts  and  to  the  due  administration  of  justice.  The 
decision  in  this  case  is  found  in  the  "Public  laws  and  resolutions 
passed  by  the  United  States  Philippine  Commission"  during  the  quar- 
ter ending  February  28,  1901,  on  page  1  of  the  public  resolutions 
therein  printed. 

On  the  same  date,  the  decision  of  the  commission  in  the  San  Jose 
College  case  was  rendered.     The  history  of  that  case  is  stated  in 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  199 

another  portion  of  this  report,  and  the  decision  is  embraced  in  the  vol- 
ume last  above  referred  to. 

On  the  22d  day  of  Januaiy,  1901,  act  No.  Y5  was  passed,  providing 
an  easy  remedy  against  judgments  obtained  by  fraud,  accident  or 
mistake,  which  enables  the  supreme  court  on  petition,  upon  just  terms, 
to  grant  relief  against  judgments  that  have  been  obtained  by  fraud, 
accident  or  mistake,  and  to  grant  appeal  where  the  right  to  appeal  had 
been  lost  by  reason  of  either  of  the  grounds  above  stated.  This  act 
is  in  accordance  with  the  procedure  that  obtains  in  many  of  the  States 
of  the  United  States  and  was  rendered  necessary  as  emergency  legis- 
lation to  afford  redress  against  iniquitous  judgments  obtained  by  fraud 
which  were  about  to  be  enforced  and  against  which  the  existing  Span- 
ish law  furnished  no  adequate  relief. 

On  January  21,  1901,  act  No.  76,  conferring  admiralty  jurisdiction 
upon  provost  courts,  was  enacted.  There  were  no  courts  existing  in 
the  islands  at  that  time  which  clearly  had  jurisdiction  over  maritime 
contracts,  torts,  injuries  or  offenses,  and  the  existing  civil  courts  were 
so  dilatory  in  their  dispatch  of  business  that  it  was  deemed  essential 
to  confer  admiralt}^  jurisdiction  upon  provost  courts,  where  speedy 
justice  could  be  rendered  in  relation  to  admiralty  controversies,  crim- 
inal and  civil,  so  that  vessels  might  not  unduly  be  delayed  in  the 
waters  of  these  islands,  awaiting  the  determination  of  a  maritime  con- 
troversy. The  right  of  review  of  the  proceedings  of  the  provost 
courts,  acting  in  admiralty  was  by  the  act  conferred  upon  the  military 
governor  in  cases  where  the  proceedings  were  had  in  the  court  located 
in  Manila,  and  upon  the  commanding  general  of  the  department  in 
which  the  court  was  located  if  the  proceedings  were  had  in  a  court 
located  at  another  port  in  the  Philippine  Islands.  The  commanding 
general  or  military  governor,  as  the  case  might  be,  was  thus  given 
substantially  the  same  power  over  admiralty  proceedings  conducted 
in  the  provost  courts  that  he  had  over  other  proceedings  conducted  by 
those  courts. 

Under  the  Spanish  procedure,  a  system  of  challenging  of  judges, 
magistrates  and  justices  of  the  peace  existed,  which  was  found  to  result 
in  an  absolute  paralysis  of  all  the  machinery  of  justice  in  certain  cases. 
Aside  from  the  ordinary  grounds  of  disqualification  of  judges  which 
exist  in  the  United  States,  the  Spanish  law  allowed  a  peremptory  chal- 
lenge of  the  competency  of  judicial  officers  on  the  ground  of  undue 
friendship  or  hostility  to  either  party  or  his  counsel.  Upon  these  or 
other  grounds,  it  was  practicable  for  the  party  to  challenge  the  com- 
petency of  a  judge  or  magistrate  at  nearly  every  stage  of  the  proceed- 
ings, when  the  party  wished  to  secure  delay  or  imagined  that  the  judge 
or  magistrate  was  liable  to  decide  against  him.  Upon  the  filing  of  the 
challenge  as  to  the  competency  of  the  judge  or  magistrate,  the  ques- 
tion of  competency  was  referred  to  another  judge  or  magistrate  to 


200  REPORTS    OF    THE    OIVIL    GOVERNMENT 

(lotormino.  aiul  tho  original  procoedino-.sawaitcdtho  termination  of  this 
side  issue.  But  tlie  eonipetency  of  tlie  judye  or  niag'istnite  sitting  to 
determine  the  oompetenc}'  of  the  first  judge  or  magistrate,  could  be 
challenged  upon  the  same  ground,  and  the  fitness  of  the  second  judge 
or  magistrate  to  sit  in  the  trial  of  the  (juestion  of  the  competency  of 
the  first  one  was  referred  to  a  third,  and  so  on,  ad  infinitum.  Crimi- 
nal prosecutions  were  pending  in  the  city  of  Manila,  in  which  every 
available  judge  and  justice  had  been  challenged,  so  that  the  alleged 
criminal  was  able  to  hold  the  public  entirely  at  bay  and  prevent  all 
proceedings  to  secure  his  conviction.  To  meet  this  difiicult}'^,  act  No. 
81  was  enacted  on  Januar}^  28,1901,  repealing  all  those  portions  of  the 
Spanish  civil  and  criminal  codes  of  procedure  authorizing  the  challenge 
of  judges,  magistrates,  justices  of  the  peace,  assessors  and  auxiliaries 
to  tribunals,  and  providing  that  the  ordinary  disqualifications  of  pecun- 
iar}^ interest,  relationship  to  either  party  within  the  fourth  degree  of 
consanguinity  or  affinity,  or  having  been  counsel  in  an  action,  should 
exist,  and  that  the  judge  or  magistrate  should  determine  upon  the  ques- 
tion of  his  own  competency  immediately,  as  is  done  in  the  United 
States,  and  proceed  with  the  action  or  retire  from  it,  according  to  his 
determination  upon  that  question,  and  that  no  appeal  or  stay  of  action 
should  be  allowed  from  or  by  reason  of  his  decision  in  favor  of  his  own 
competency  until  after  the  final  judgment  in  his  court.  This  act  fur- 
nished an  immediate  relief  in  many  cases  and  allowed  the  clogged 
machinery  once  more  to  get  in  motion. 

REORGANIZATION   OF   COURTS. 

On  the  11th  day  of  June,  1901,  the  commission  enacted  act  No.  136, 
providing  for  the  organization  of  courts  in  the  Philippine  Islands, 
which  act  took  effect  on  the  16th  day  of  June.  The  preparation  of 
this  act,  as  well  as  of  the  code  of  civil  procedure  hereinafter  referred 
to,  was  intrusted  to  Commissioner  Ide  soon  after  the  arrival  of  the 
commission  in  the  islands,  and  the  first  draft  of  the  act  was  prepared 
by  him  during  the  year  succeeding  his  assignment  for  that  purpose. 
After  the  completion  of  the  first  draft  of  the  two  acts,  they  were  revised 
by  President  Taft  and  Commissioner  Wright,  the  other  two  members 
of  the  commission  having  a  legal  education.  When  the  work  of  revi- 
sion by  the  commissioners  had  been  concluded,  the  proposed  acts  were 
printed  in  the  Spanish  and  English  languages  and  distributed  to  the 
bar  and  all  others  of  the  public  who  were  interested,  and  public  dis- 
cussion thereof  was  invited.  The  public  sessions  of  the  commission 
for  the  discussion  of  these  important  enactments  extended  over  a  period 
of  nearly  two  months.  It  thus  became  practical)le  for  the  commission 
to  receive  most  important  aid  and  information  in  the  perfection  of  the 
laws  and  their  adaptation  to  local  conditions. 

Act  No.  136,  providing  for  the  organization  of  courts,  establishes  a 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  201 

complete  system  of  civil  tribunals  for  the  administration  of  justice  in 
ever}^  portion  of  the  Philippine  Archipelago.  It  requires  that  a  person 
to  be  eligible  to  the  office  of  chief  justice  of  the  supreme  court,  of 
judge  of  the  supreme  court,  or  of  a  court  of  first  instance,  must — 

1.  Be  more  than  30  j-ears  of  age.  •• 

2.  Be  a  citizen  of  the  United  States,  or  a  native  of  the  Philippine 
Islands,  or  have  acquired  by  virtue  of  the  treaty  of  Paris  the  political 
rights  of  a  native  of  these  islands. 

3.  He  must  have  practiced  law,  or  have  been  a  judge  of  a  court 
of  record  in  the  United  States  or  in  the  Philippine  Islands  or  in  Spain, 
or,  previous  to  the  date  of  the  ratification  of  the  treaty  of  Paris,  in 
any  Spanish  territorj^  for  a  period  of  five  years,  or  must  for  a  like 
period  have  filled  any  office  which  requires  a  legal  degree  as  an  indis- 
pensable qualification  in  the  Philippine  Islands,  or,  previous  to  the 
date  of  the  ratification  of  the  treat}"  of  Paris,  in  any  Spanish  territor5\ 

The  act  requires  that  judges  and  justices  of  the  several  courts  shall, 
before  they  proceed  to  execute  the  duties  of  their  respective  offices, 
take  and  subscribe  to  the  following  oath  or  affirmation,  to  wit: 

I, ,  solemnly  swear  (or  affirm)  that  I  will  administer 

justice  without  respect  to  persons,  and  do  equal  right  to  the  poor  and 
to  the  rich,  and  that  I  will  faithfully  and  impartially  discharge  and 

perform  all  the  duties  incumbent  upon  me  as ,  according  to  the 

best  of  my  ability  and  understanding,  agreeably  to  the  laws  of  the 
Philippine  Islands.  And  that  I  recognize  and  accept  the  supreme 
authorit}^  of  the  United  States  of  America  in  these  islands,  and  will 
maintain  true  faith  and  allegiance  thereto;  that  I  impose  upon  mj^self 
this  obligation  voluntarily,  without  mental  reservation  or  purpose  of 
evasion;  so  help  me  God. 

The  act  establishes  a  supreme  court,  to  consist  of  a  chief  justice  and 
6  associate  judges,  any  5  of  whom  can  convene  and  shall  form  a  quorum; 
but  requires  the  concurrence  of  at  least  4  members  to  pronounce  a 
judgment.  The  annual  salary  of  the  chief  justice  is  fixed  at  $7,500 
and  the  associate  judges  at  17,000.  The  judges,  by  the  terms  of  the 
law,  are  to  be  appointed  by  the  commission  and  shall  hold  office 
during  its  pleasure;  but  by  subsequent  orders  of  the  Secretary  of 
War  and  legislation  by  the  commission  in  accordance  therewith,  the 
power  of  appointing  and  removing  judges  and  other  civil  officers  has 
become  vested  in  the  civil  governor,  subject  to  the  advice  and  approval 
of  the  commission. 

The  court  is  required  to  hold  regular  terms  for  the  hearing  of 
causes  at  Manila,  commencing  on  the  second  Monday  of  January  and 
July;  at  Iloilo  on  the  first  Monday  of  November,  and  at  Cebu  on  the 
first  Monday  of  December  of  each  year.  Special  sessions  at  either  of 
the  above-named  places,  at  such  other  times  as  may  l)c  prescribed  by 
the  judges,  may  be  held.  The  act  gives  to  the  supreme  court  original 
jurisdiction  to  issue  writs  of  mandamus,  certiorari,  prohibition,  habeas 


202  RKroHTS    OK    TIIK    CIVIL    (JOVKKNMENT 

corpus  and  quo  wari'iuito,  and  the  power  to  issue  all  other  auxiliary 
Avrits  and  processes  necessarj^  to  the  complete  exercise  of  its  original 
or  appellate  jurisdiction.  It  gives  to  that  court  appellate  jurisdiction 
over  all  actions  and  special  proceedings  brought  to  it  from  courts  of 
first  instance  »nd  from  other  tribunals  from  whose  judgment  the  law 
lias  speciall}'  provided  an  appeal  to  the  supreme  court.  It  provides 
for  a  clerk,  with  deputies,  and  makes  the  governor  of  a  province  in 
which  the  court  is  held  its  officer  for  the  enforcement  of  good  order 
and  the  service  of  its  process;  but  in  the  city  of  Manila,  the  sheriff 
of  that  cit}^  is  made  the  officer  of  the  court.  It  authorizes  the  judges 
of  the  supremo  court  to  make  all  necessar}"  rules  for  orderly  pro- 
cedure in  that  court  and  in  the  courts  of  first  instance  and  in  the 
courts  of  justices  of  the  peace,  and  for  the  admission  of  lawyers  for 
the  practice  of  law  before  such  courts,  and  to  assign  any  judge  of  that 
court  to  hear  any  particular  cause  pending  in  any  court  of  first 
insttince  or  to  hold  a  term  of  any  court  of  first  instance  for  reasons 
satisfactory  to  the  judges. 

It  provides  for  a  reporter  of  decisions  of  the  supreme  court,  at  a 
salary  of  |1,000  per  year,  who  shall  prepare  and  publish  volumes  of 
the  reports  of  the  decisions  of  the  supreme  court,  to  be  styled  "  Philip- 
pine Reports,"  in  substantially  the  manner  in  which  volumes  of  the 
Reports  of  Decisions  of  the  Supreme  Court  of  the  United  States  are 
reported  and  published. 

It  abolishes  the  previously  existing  supreme  court  and  the  Spanish 
tribunal  called  "Contencioso  administrativo,"  and  transfers  to  the  new 
supreme  court  all  the  proceedings  pending  in  those  tribunals. 

It  provides  for  an  attorne}^ -general,  at  a  salary  of  $5,500  per  annum; 
a  solicitor-general,  at  a  salary  of  $4,500  per  annum,  and  an  assistant 
attorney-general,  at  a  salar}^  of  $3,000  per  annum,  who  are  to  perform 
substantially  the  same  duties  as  similar  officers  in  the  United  States. 

It  provides  for  one  court  of  first  instance  for  each  province,  with 
salaries  ranging  from  $3,000  to  $5,500,  in  accordance  with  the  population 
and  the  importance  of  the  district  to  which  the  judge  is  assigned  and 
the  amount  of  litigation  liable  to  be  pending  therein.  By  an  act  here- 
inafter referred  to,  the  whole  archipelago  was  divided  into  15  judicial 
districts,  of  which  the  city  of  Manila  constitutes  one,  and  for  which 
two  judges  of  the  court  of  first  instance  are  provided,  one  judge  being 
assigned  to  each  of  the  other  14  judicial  districts.  The  highest  sala- 
ries are  paid  to  the  judges  of  the  courts  of  first  instance  for  the  city  of 
Manila.  Any  judge  of  the  court  of  first  instance  may  be  transferred 
by  order  of  the  supreme  court  for  the  purpose  of  holding  a  term  or 
art  of  a  term  in  any  other  judicial  district.  Courts  of  first  instance 
are  given  original  jurisdiction — 

1.  In  all  cases  in  which  the  subject  of  litigation  is  not  capable  of 
pecuniary  estimation. 


OF    THE    THILIPPINE    ISLANDS,    1900-1903.  203 

2.  In  all  civil  actions  which  involve  title  to  or  possession  of  real 
property,  or  any  interest  therein,  or  the  legality  of  any  tax,  impost 
or  assessment;  except  actions  of  forcible  entry  into  and  detainer  of 
lands  or  buildings,  original  jurisdiction  of  which  is  conferred  upon 
courts  of  justices  of  the  peace. 

3.  In  all  cases  in  which  the  demand,  exclusive  of  interest,  or  the 
value  of  the  property  in  controversy  amounts  to  $100  or  more. 

■1.  In  all  actions  in  admiralty  and  maritime  jurisdiction,  irrespective 
of  the  value  of  the  property  in  controversy  or  the  amount  of  the 
demand. 

5.  In  all  matters  of  probate,  both  of  testate  and  intestate  estates, 
appointment  of  guardians,  trustees  and  receivers,  and  in  all  actions 
for  the  annulment  of  marriage,  and  in  all  such  special  cases  and  pro- 
ceedings as  are  not  otherwise  provided  for. 

6.  In  all  criminal  cases  in  which  a  penalty  of  more  than  six  months' 
imprisonment  or  a  fine  exceeding  $100  may  be  imposed. 

7.  Courts  and  judges  are  given  power  to  issue  writs  of  injunction, 
mandamus,  certiorari,  prohibition,  quo  warranto  and  habeas  corpus 
in  their  respective  provinces  and  districts. 

The  appellate  jurisdiction  extends  over  all  causes  arising  in  justices' 
and  other  inferior  courts  in  their  respective  provinces. 

The  prosecuting  officer  in  such  courts  is  the  provincial  fiscal,  chosen 
in  accordance  with  the  provincial  government  act,  who  performs  the 
ordinary  duty  of  a  local  prosecuting  officer,  and  likewise  acts  as  the 
legal  adviser  of  the  provincial  government  and  its  representatives 
in  litigations.  All  the  previously  existing  courts  of  first  instance  are 
abolished  and  all  actions  pending  therein  are  transferred  to  new  courts 
of  first  instance. 

Courts  of  justices  of  the  peace  are  established  in  every  organized 
municipality  throughout  the  whole  islands.  The  appointment  and 
removal  of  judges  of  courts  of  first  instance  and  of  justices  of  the 
peace  rests  in  the  civil  governor,  with  the  advice  and  approval  of 
the  commission.  A  justice  of  the  peace  is  given  original  jurisdiction 
for  the  trial  of  all  misdemeanors  and  offenses  arising  within  the 
municipality  in  which  he  is  a  justice  in  all  cases  where  the  sentence 
might  not  by  law  exceed  six  months'  imprisonment  or  a  fine  of  $100; 
and  for  the  trial  of  all  civil  actions  properly  triable  within  his  munic- 
ipality and  over  which  jurisdiction  has  not  been  given  to  the  court  of 
first  instance,  in  all  cases  in  which  the  demand,  exclusive  of  interest 
or  the  value  of  the  property  in  controversy,  amounts  to  less  than  $300; 
and  over  actions  for  forcible  entry  into  and  detainer  of  real  estate, 
irrespective  of  the  amount  in  controversy.  But  in  the  city  of  Manila, 
by  virtue  of  the  provisions  of  the  charter  of  the  city,  two  justices  of 
the  peace  only  are  authorized,  and  no  criminal  jurisdiction  is  con- 
ferred upon  them,  that  jurisdiction  being  exercised  solely  by  munici- 


204  REPORTS    OF    THE    OIVIL    GOVERNMENT 

pal  courts.  Auxiliary  justices  of  the  peace  are  provided,  one  for  each 
municipality,  to  act  in  case  of  the  absence,  disqualification  or  disabil- 
ity of  the  justice.  By  this  act  the  civil  jurisdiction  before  exercised 
by  provost  courts  is  repealed,  and  civil  actions  pending  therein  are 
transferred  to  the  proper  civil  tribunal  in  which  they  would  have  been 
brought  in  accordance  with  the  provisions  of  the  act  had  the  act 
been  in  force  at  the  time  such  actions  were  commenced. 

The  existing  Spanish  law  as  to  notaries  public  is  continued  in  force 
until  a  new  system  of  registration  of  land  titles  shall  have  been  pro- 
vided, after  which  time  the  oiffice  of  notary  public  is  made  substantially 
the  same  as  it  is  throughout  most  of  the  United  States,  and  notaries 
public  are  at  that  time  required  to  deposit  in  the  office  of  the  keeper 
of  the  general  archives  of  the  islands  at  Manila,  all  registers,  files, 
original  documents,  protocols  and  notarial  instruments  of  every  kind 
which  are  in  their  possession  and  custody. 

On  the  12th  day  of  June,  1901,  act  No.  140  was  passed,  defining  the 
boundaries  of  the  15  judicial  districts  and  prescribing  the  salaries  of 
the  judges  and  the  times  when  and  the  places  where  terms  of  courts 
of  first  instance  should  be  held  in  the  several  districts. 

On  June  26,  1901,  act  No.  151  was  enacted,  fixing  the  compensation 
of  the  clerks  of  each  of  the  courts. 

On  June  27,  1901,  act  No.  152  was  enacted,  providing  for  the 
appointment  of  stenographers,  typewriters,  interpreters  and  trans- 
lators for  the  several  courts  when  needed,  and  that  the  governor  or 
sherifi^  of  the  province  and  the  sheriff  of  the  city  of  Manila  should  be 
the  legal  custodian  of  court-houses  and  public  property  therein,  except 
the  books,  records  and  papers  pertaining  to  the  oflice  of  clerk. 

On  July  6,  1901,  act  No.  159  was  passed,  providing  for  the  appoint- 
ment of  temporary  oflScers  of  courts  and  clerks  of  courts  in  provinces 
not  yet  organized  under  the  provincial-government  act. 

On  July  9,  1901,  act  No.  160  was  passed,  making  temporary  provi- 
sions for  the  appomtment  of  fiscals  or  prosecuting  officers  in  the 
provinces  or  islands  not  yet  organized  under  the  provincial  govern- 
ment act.  In  both  the  last  two  named  acts  judges  of  the  courts  were 
given  the  power  to  make  temporary  appointments  of  officials  to  serve 
until  their  provinces  should  be  organized  or  until  regular  appoint- 
ments should  be  made  by  proper  authority. 

On  the  same  day,  act  No.  162,  providing  that  all  clerks  of  court 
should  be  ex  officio  notaries  public,  was  passed. 

The  inhabitants  of  the  island  of  Negros  had  long  been  friendly  to 
the  people  of  the  United  States,  and  under  the  authority  of  the  United 
States  had  organized  a  government  of  their  own,  with  a  civil  governor 
chosen  by  themselves  and  a  military  governor  appointed  by  the  com- 
manding general  of  the  Division  of  the  Philippines.     Under  that  gov- 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  205 

eminent  a  s^^stem  of  courts  had  been  established,  presided  over  by 
Filipino  judges,  and  a  large  number  of  actions,  civil  and  criminal,  but 
more  largel}-  criminal,  had  accumulated.  There  were,  in  round  num- 
bers, 1,000  cases  pending  in  the  two  provinces  of  that  island  in  the 
courts  of  first  instance,  and  there  were  prisoners  confined  in  prison 
who  had  been  waiting  trial  for  nearly  two  3^ears,  some  of  them  for 
offenses  the  penalt}^  for  which  could  not  by  law  exceed  a  few  months' 
imprisonment.  It  was  considered  impracticable  for  the  judge  of  the 
court  of  first  instance  of  the  judicial  district,  of  which  the  island  of 
Negros  formed  a  part,  to  cope  with  the  new  business  which  would  be 
constantly  arising  within  his  district  and  likewise  dispose  of  the  great 
accumulation  of  old  litigation.  It  was  thought  to  be  a  great  injustice 
to  leave  litigants  to  await  the  slow  processes  that  had  been  in  vogue 
and  to  leave  prisoners  to  languish  under  confinement  without  trial 
until  their  cases  could  be  reached  in  regular  course.  To  meet  this 
contingency,  on  efuly  16,  1901,  act  No.  166  was  passed,  creating  a 
special  court  for  the  trial  of  all  actions,  civil  and  criminal,  pending  in 
the  island  of  Negros  on  the  16th  day  of  June,  1901,  when  the  general 
act  for  the  reorganization  of  courts  went  into  effect,  and  which  had 
not  been  heard  by  the  new  courts  of  first  instance  prior  to  the  passage 
of  act  No.  136,  and  all  appeals  that  had  been  pending  on  June  16, 1901, 
in  the  appellate  court  of  the  island  of  Negros.  One  judge  was  pro- 
vided for  that  special  court,  at  a  salary  of  |3,500  per  year  and  all  the 
actions  over  which  his  court  was  given  jurisdiction  were  transferred 
to  that  court. 

On  the  31st  day  of  July,  1901,  act  No.  183  was  passed,  incorpora- 
ting the  city  of  Manila,  b}"  virtue  of  which  two  municipal  courts  were 
provided  for,  with  2  judges  at  an  annual  salarj'^  of  $3,000  each  and 
clerks  at  an  annual  salary  of  $1,000.  Under  this  act  also  2  justices  of 
the  peace  for  the  city  are  to  be  appointed,  each  justice  to  receive  a 
salarj^  of  $1,000  a  3"ear,  and  to  have  civil  jurisdiction  onl}-.  The  organ- 
ization of  the  city  of  Manila  is  more  full}^  set  forth  in  another  portion 
of  this  report  and  therefore  is  not  here  stated  at  large. 

On  August  5,  1901,  act  No.  186  was  passed,  transferring  all  criminal 
actions  and  proceedings  before  pending  in  courts  of  justices  of  the 
peace  in  the  city,  together  with  all  records,  books  and  proceedings 
relating  thereto,  and  all  criminal  prosecutions  pending  in  the  above- 
named  courts  of  the  city  of  Manila,  to  the  new  municipal  courts,  and 
repealing  all  orders  and  acts  conferring  original  jurisdiction  in  crimi- 
nal actions  upon  provost  courts  and  courts  of  justice  of  the  peace 
within  the  city. 

On  August  10,  1901,  act  No.  193  was  passed,  authorizing  the  fiscals 
or  prosecuting  attorneys  in  unorganized  provinces  temporarily  to  per- 
form the  duties  of  registrars  of  property.  The  provincial  government 
23181—04 14 


20{\  Ki<:i'()Krs  ok  thk  ("Ivil  covkknmknt 

act  had  ])i-ovidod  that  in  oroanized  pnnincos  the  duties  of  registrar  of 
propiM-tv  inioht  tcMiiporarily  be  performed  })v  provincial  treasurers. 

On  August  10,  li)01,  act  No.  I'J-i  was  passed,  conferring  upon  jus- 
tices of  the  peace  and  presidentes  of  municipalities  the  power  to  make 
preliminary  investigation  of  criminal  oft'enses  and  to  hold  to  bail,  for 
prosecution  in  higher  courts,  criminals  against  whom  reasonable  cause 
should  be  shown. 

It  will  be  observed  that  the  acts  heretofore  referred  to  have  dealt  to 
a  considerable  extent  with  proceedings  in  civil  actions,  although  pro- 
visions for  jurisdiction  over  all  proceedings,  criminal  and  civil,  have 
been  made;  but  the  new  code  of  criminal  procedure  has  not  3^et  been 
enacted  and  the  jurisdiction  of  justices  of  the  peace  to  make  prelimi- 
nary investigations  of  alleged  criminals,  and  to  bind  them  over,  was  in 
great  doubt  under  the  code  of  criminal  procedure  that  had  been  estab- 
lished b}^  military  General  Order  No.  58,  which  still  constitutes  the 
basis  of  legal  procedure  in  criminal  prosecutions.  Act  No.  194,  there- 
fore, was  indispensable  to  meet  those  cases  where  prosecutions  were 
had  in  ths  absence  of  the  judge  of  the  court  of  first  instance.  Act  No. 
82,  providing  for  the  organization  of  municipal  governments  in  the 
Philippine  Islands,  gives  the  presidentes  of  the  various  municipalities 
certain  powers  to  act  as  magistrates  in  the  trial  of  offenders  against 
municipal  ordinances  within  their  own  municipalities. 

Other  minor  acts  have  been  passed  relating  to  the  officers  and 
emplo3^ees  of  the  courts  that  it  is  unnecessary  here  to  detail  in  order 
to  obtain  a  complete  view  of  the  judicial  system  which  has  been 
established. 

COMMENTS   UPON   THE   JUDICIAL   SYSTEM. 

It  will  be  seen  from  the  foregoing  statements  that  the  system  pro- 
vides for  trial  of  violators  of  municipal  ordinances  by  the  presidentes 
of  municipalities;  that  the  prosecutions  for  minor  offenses  and  trials 
of  civil  actions  involving  small  amounts  and  the  preliminary  investi- 
gation of  higher  crimes  are  confided  to  justices  of  the  peace,  one  jus- 
tice being  provided  for  every  town  except  the  city  of  Manila;  that 
courts  of  first  instance  are  made  courts  of  record  and  of  general  juris- 
diction, one  being  provided  for  each  province,  but  the  city  of  Manila 
having  two  judges;  that  one  court  of  first  instance  is  provided  for 
every  province,  with  sessions  at  least  twice  in  each  year  in  each  prov- 
ince, and  in  the  more  important  provinces  three  or  four  times;  that 
the  whole  archipelago  is  divided  into  14  judicial  districts,  outside  the 
city  of  Manila,  and  1  judge  for  the  court  of  first  instance  is  pro- 
vided for  each  judicial  district,  with  a  special  tribunal  for  disposing  of 
arrearages  of  litigation  in  the  island  of  Negros;  that  the  supreme 
court  consists  of  a  chief  justice  and  6  associate  judges,  and  that  ade- 
quate provisions  are  made  for  reporting  the  decisions  of  the  supreme 


OF    THE    PHILIPPINP:    islands,    1!XM)-1903.  207 

court;  for  representation  of  the  o-overnment,  general  and  local,  in  all 
litigation,  by  the  attorney-general,  solicitor-general,  and  provincial 
fiscal;  that  the  city  of  Manila  has  a  special  municipal  system  of  courts, 
and  that  a  notarial  system  for  the  archipelago  is  provided. 

Some  of  the  judicial  districts  contain  very  large  populations,  the 
largest  being  the  eleventh,  which  includes  the  provinces  of  Cebu  and 
Bohol,  and  contains  approximately  752,000  people.  The  third,  fourth, 
fifth,  ninth,  tenth  and  twelfth  districts  each  contain  populations 
exceeding  500,000  in  number.  Many  of  the  inhabitants  of  all  the 
districts  are  poor  people^  laborers  employed  upon  haciendas,  and  hav- 
ing little  or  no  civil  litigation,  but  contributing  in  a  degree  to  the 
criminal  dockets  of  the  several  courts.  It  is  not  certain  that  the  num- 
ber of  judges  who  have  been  appointed  will  be  able  to  keep  up  with 
the  litigation  pending  and  to  be  pending  in  their  several  courts.  The 
amount  of  civil  litigation  growing  out  of  incidents  connected  with  the 
war  is  becoming  considerable  in  importance,  while  the  criminal  dockets 
are  necessarily  large  at  all  times  and  more  especially  so  from  the 
unsettled  conditions  following  war. 

Under  the  Spanish  regime,  there  was  one  judge  for  each  province, 
and  with  that  larger  number  of  judges  there  was  very  great  delay  in 
the  disposition  of  causes  and  criminals  were  confined  for  long  periods 
awaiting  trial.  But  the  Spanish  procedure  was  exceedingly  slow. 
Everything  that  took  place  in  the  courts  was  reduced  to  writing  in 
most  voluminous  form;  the  proceedings  were  hampered  by  constant 
appeals  upon  petty  interlocutory  matters  and  by  the  challenging  of 
judges  and  magistrates;  and  the  hours  for  working  in  the  courts  were 
very  short.  With  a  reformed  criminal  and  civil  procedure,  largely 
based  upon  American  lines,  and  with  judges  selected  for  capacity, 
ability,  integrity  and  efficiency  in  the  transaction  of  business,  it  is 
hoped  that  the  present  number  of  judges  may  be  sufficient  to  keep  the 
dockets  clear  and  to  furnish  a  speedy  redress.  The  law  organizing 
and  establishing  the  system  of  courts  only  went  into  effect  on  the  16th 
day  of  June,  1901,  and  it  is  impracticable  at  this  early  date  to  say 
with  certainty  that  the  present  number  of  judges  will  not  be  entirely 
sufficient  to  cope  with  all  the  litigation  of  the  islands.  If  experience 
should  demonstrate  that  more  judges  are  necessary,  the  number  can 
be  readily  increased  and  the  districts  rearranged  by  appropriate  legis- 
lation. But  it  is  already  apparent  that  two  judges  of  the  court  of  first 
instance  in  the  city  of  Manila  arc  all  that  are  there  needed. 

The  selection  and  appointment  of  judges  presented  considerable 
difficulty.  The  inauguration  of  a  new  system  of  procedure  entirely 
unknown  to  the  residents  of  these  islands  in  place  of  the  slow  and 
tedious  processes  that  had  heretofore  been  in  vogue,  and  which  are 
deeply  rooted  in  the  halnts  of  all  men  here  resident  possessing  a  legal 
education,  rendered  it  exceedingly  undesirable  that  Filipino  judges 


208  REPORTS  OF  THK  (IV II.  GOVERNMENT 

only  ^iliould  bo  appointed;  nor  was  it  deemed  fitting-  that  the  deter- 
mination of  the  interests  of  citizens  of  the  United  States,  as  to  their 
rehitions  to  one  another  and  to  the  natives  of  the  islands  and  to  the 
Unitcfl  States,  should  be  vested  wholly  in  judges  unfamiliar  with  our 
methods  of  procedure  and  theory  of  f^overnment.  On  the  other  hand, 
it  was  deemed  unjust  to  impose  upon  the  inhabitants  of  the  Philippine 
Islands  a  judiciary  composed  wholly  of  citizens  of  the  United  States, 
imfamiliar  with  the  institutions,  language,  customs  and  procedure 
here  prevailing,  and  it  was  considered  that  a  certain  number  of  Fili- 
pino judges  was  indispensable,  not  only  to  meet  the  just  aspirations 
of  the  Filipinos  themselves,  but  also  by  reason  of  the  superior  knowl- 
edge of  all  previous  laws  and  customs  possessed  by  them.  For  politi- 
cal reasons — that  is,  for  the  purpose  of  enabling  the  Filipino  people 
themselves  to  feel  that  they  were  justly  and  fairly  treated,  and  that 
their  most  highly  educated  men  were  recognized  and  their  services 
availed  of  in  important  and  responsible  positions,  and  that  the  highest 
stations  would  be  open  to  them  as  fast  as  they  were  fitted  to  fill  them — 
it  seemed  highly  expedient  that  as  large  a  representation  of  Filipinos 
in  the  administration  of  justice  as  was  practicable  should  be  made. 

The  mind  of  educated  Filipino  people  is  well  adapted  to  deal  with 
legal  questions.  A  number  of  the  native  lawyers  of  the  country  are 
highly  educated  in  the  learning  of  the  profession  and  are  expert  in 
their  knowledge  of  the  civil  law  and  procedure  thereunder,  and 
entirely  competent  to  perform  the  duties  of  judges.  From  them  it 
has  been  found  possible  to  select  men  distinguished  for  learning, 
probit}^  and  independence.  The  chief  justice  of  the  supreme  court, 
Hon.  Ceyatano  S.  Arellano,  is  a  native  of  the  islands,  an  able  and  dis- 
tinguished lawyer,  an  upright  man  and  was  the  chief  justice  of  the 
provisional  audiencia  or  supreme  court  organized  under  military 
authority.  Two  other  Filipinos  have  been  appointed  as  judges  of  the 
supreme  court,  Hon.  Florentino  Torres,  wno  was  attorney-general 
under  the  military  regime  and  a  judge  under  the  Spanish  regime,  and 
Hon.  Victorino  Mapa.  The  chief  justice  and  Judge  Torres  are 
Tagalogs.  Judge  Mapa  is  a  Visayan,  from  Iloilo.  He  is  a  distinguished 
representative  of  his  race  and  rendered  very  great  service  to  ouf 
couutr}^  in  securing  the  pacification  of  the  island  of  Panay. 

The  other  four  judges  constituting  the  supreme  bench  are  citizens  of 
the  United  States.  One  is  James  F.  Smith,  a  lawyer  of  distinction  in 
San  Francisco,  subsequently  a  general  in  the  Volunteer  Army  of  the 
United  States  and  military  governor  of  the  island  of  Negros,  and  later 
collector  of  customs  of  the  islands  and  of  the  chief  port.  The  other 
three  were  appointed  from  citizens  of  the  United  States  not  before  in 
the  Philippine  Islands:  Hon.  Joseph  F.  Cooper,  of  Texas;  Hon.  Charles 
A.  Willard,  of  Minnesota;  Hon.  Fletcher  Ladd,  of  New  Hampshire. 
The  appointments  of  citizens  of  the  United  States  to  the  bench  of  the 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903,  209 

supreme  court  were  made  by  the  commission  after  the  most  careful 
investigation  and  examination  of  the  recommendations  and  testimonials 
presented  on  behalf  of  those  under  consideration,  of  whom  there  were 
a  very  great  number,  and  after  local  investigation  in  the  United  States 
under  the  direction  of  the  Secretary  of  War.  Political  considerations 
did  not  enter  to  the  slightest  degree  into  the  appointment  of  an}-  judge 
to  any  court  in  the  islands,  the  sole  questions  being  the  fitness,  capacity 
and  character  of  the  appointee,  the  preference  being  given,  other  things 
being  equal,  to  such  persons  as  possessed  a  knowledge  of  the  Spanish 
language. 

Seven  other  citizens  of  the  United  States  were  also  brought  b}"  author- 
ity of  the  commission  from  the  United  States  to  till  judicial  positions, 
namely:  Elias  F.  Johnson,  of  Michigan;  Paul  W.  Linebarger,  of 
Illinois;  Henry  C.  Bates,  of  Vermont;  Lyman  J.  Carlock,  of  Illinois; 
William  A.  Kincaid,  of  Texas;  Arthur  F.  Odlin,  of  New  Hampshire, 
and  Libbeus  R.  Wiltie}^  of  Missouri,  the  latter  of  whom  was  appointed 
attorney-general  after  his  arrival  in  the  islands.  All  the  gentlemen 
last  named  were  selected  in  the  same  manner  as  the  judges  of  the 
supreme  court  hereinabove  referred  to.  William  F.  Norris,  of 
Nebraska,  who  had  been  in  the  islands  for  between  one  and  two  3^ears 
serving  as  counsel  of  the  Government  of  the  United  States  before  a 
commission  appointed  to  investigate  claims  against  the  United  States 
in  the  islands,  was  appointed  judge  of  the  special  court  for  the  island 
of  Negros.  Four  other  citizens  of  the  United  States  who  were 
appointed  judges — James  H.  Blount,  jr.,  of  Georgia;  Adam  C.  Carson, 
of  Virginia;  Warren  H.  Ickis,  of  Iowa,  and  George  P.  Whitsett,  of 
Missouri — were  young  men  of  legal  education  and  considerable  legal 
experience  both  in  the  United  States  and  in  the  Volunteer  Army  in  the 
Philippine  Islands,  where  they  served  as  judge-advocates  and  provost 
judges,  and  were  highly  recommended  for  appointment  hy  all  the  mil- 
itary officers  under  whom  they  acted. 

Six  Filipinos  were  appointed  judges  of  courts  of  first  instance: 
Isidoro  Paredes,  Manuel  Araullo,  Felix  M.  Roxas,  Ignacio  Villamor, 
Stanislaus  Jusay  and  Juan  de  Leon.  The  Filipino  judges  selected 
were  men  of  reputation,  learning  and  distinction,  and  are  rapidly 
acquiring  a  knowledge  of  the  English  language.  It  is  likewise  true 
that  the  American  judges  nearly  all  either  speak  or  are  rapidl}"  acquir- 
ing the  Spanish  language.  Gregorio  Arenata,  one  of  the  ablest  law- 
yers in  the  islands,  formerly  a  member  of  the  insular  supreme  court 
under  military  regime,  was  appointed  solicitor-general,  and  Antonio 
Constantino,  formerly  an  assistant  in  the  office  of  the  attorney-general, 
was  appointed  assistant  attorney -general.  All  the  officials  above 
named  are  now  engaged  in  the  regular  pei-formuncc  of  their  duties 
and  are  apparently  inaugurating  a  successful  jidmini.stration  of  justice. 
All  these  appointments  were  necessarily  niadr  in  official  form,  subse- 


210  KKI'OUTrt    OF    TITK    CIVII.    (JOVKRNMENT 

quont  to  tho  passag'c  of  act  No.  13(),  organizing-  the  judiciary  system, 
although  s(>voral  of  tlio  judges  ])rought  from  tho  United  States  had 
arrived  in  tlie  islands  l)eft)re  that  date. 

About  the  time  act  No.  VM\  was  passed,  and  after  tho  arrivial  of 
scleral  of  the  n(>w  judgi's  from  tho  ITnited  States,  much  feeling  was 
displayed  among  the  Filipinos  at  the  im])ortation  of  American  judges 
and  the  supposed  necessary  removal  of  tlio  Filipino  judges  who  were 
then  in  office.  Some  extravagant  things  were  said,  both  orally  and  in  the 
native  and  Spanish  local  press,  in  regard  to  the  supposed  degradation 
to  which  the  Filipinos  were  to  be  subjected  by  having  only  American 
judges.  There  was  likewise  considerable  feeling  among  army  circles 
that  lawyers  of  good  repute  of  the  Volunteer  Army  in  the  Division  of 
the  Philippines  who  had  served  their  country  faithfully  were  entitled 
to  appointment;  but  the  appointments  when  finally  made  and  pronml- 
gated  most  eti'ectually  quieted  all  dissatisfaction.  It  was  seen  that 
while  the  highest  degree  of  efficiency  had  been  aimed  at,  it  had  been 
possible  at  the  same  time  to  secure  an  adequate  representation  of 
Americans  who  had  served  in  the  army  of  the  United  States  in  the 
Philippine  Islands,  native  Filipinos  and  distinguished  lawyers  from 
the  United  States.  All  the  justices  of  the  peace  in  the  Islands  are 
Filipinos.  The  ill  feeling  subsided  and  the  reorganization  of  the 
judicial  S3^stem  now  apparently  meets  the  approval  of  all  except  those 
who  were  thereby  deprived  of  official  positions. 

THE    NEW   CODE    OF   CIVIL   PROCEDURE. 

On  the  7th  day  of  August,  1901,  act  No.  190,  entitled  "An  act  pro- 
viding a  code  of  procedure  in  civil  actions  and  special  proceedings  in 
the  Philippine  Islands,"  was  enacted  to  take  effect  on  the  1st  day  of 
September,  1901,  which  date  was  subsequent!}^  extended  to  the  1st  day 
of  October.  This  act,  as  before  stated,  was  enacted  after  very  full 
public  discussion,  in  which  the  College  of  Advocates,  embracing  sub- 
stantially all  the  Spanish  and  Filipino  lawyers  in  the  islands,  took  an 
active  part  through  a  committee  appointed  by  that  body  for  that 
purpose.  Members  of  the  American  Bar  Association  likewise  made 
useful  suggestions.  The  public  discussion  resulted  in  important 
amendments,  which  materially  promote  the  usefulness  of  the  code. 

Section  12  of  the  code,  relating  to  the  official  language,  was  the 
occasion  of  much  earnest  discussion  by  the  public.  The  American 
lawyers  were  urgent  that  English  should  be  made  the  official  language 
of  the  courts  immediately,  while  the  Filipino  and  Spanish  lawyers 
urged  that  Spanish  should  be  the  official  language,  either  permanently 
or  for  a  period  of  ten  years.  It  was  finally  determined  that  Spanish 
should  be  the  official  language  of  all  the  courts  until  the  1st  day  of 
January,  1906,  and  after  that  date  that  English  should  be  the  official 
language,  but  that  the  supreme  court  or  court  of  first  instance  might. 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  211 

in  any  particular  case,  order  a  duplicate  record  in  the  English  language 
also  to  be  made  and  enrolled  whenever  the  court  should  determine 
that  such  duplicate  record  would  promote  the  public  convenience  and 
interests  of  the  parties.  This  section  contains,  likewise,  the  following 
proviso,  which  removes  most  of  the  practical  difficulties  that  had  been 
presented  to  the  commission  in  the  course  of  public  discussion: 

Provided^  That  any  part}^  or  his  counsel  may  examine  or  cross- 
examine  witnesses  or  make  an  oral  argument  in  English  or  a  native 
dialect,  and  the  same  shall  be  clearly  interpreted  into  Spanish  by  a 
court  interpreter;  and  a  party  or  his  counsel  may  submit  a  written  or 
printed  pleading  or  brief  in  English  or  a  native  dialect,  if  at  the  same 
time  he  accompanies  it  by  a  correct  Spanish  translation:  And  provided 
furtlie)\  That  in  cases  in  which  all  the  parties  or  counsel  stipulate  in 
writing,  and  the  court  consents,  the  proceedings  may  be  conducted  in 
English  or  a  na;tive  dialect  only,  but  in  such  cases  the  record  of  the 
pleadings,  bills  of  exceptions,  and  judgments  shall  be  made  in  Spanish 
as  well  as  the  English  language  in  which  the  cause  was  conducted. 

The  main  reasons  which  led  the  commission  to  adopt  Spanish  as  the 
official  language  of  the  courts  for  a  period  of  five  years  were  as  fol- 
lows: All  Filipino  lawyers,  who  belong  to  a  class  very  influential  in 
this  community,  as  well  as  in  all  others,  speak  the  Spanish  language. 
Very  few  of  them  understand  the  English  language.  Thej^  would  be 
placed  at  a  great  disadvantage  and  be  practically  deprived  of  their 
means  of  livelihood  if  English  were  made  immediately  the  official  court 
language.  Not  onl}^  would  a  great  hardship  be  thus  inflicted  upon 
them,  but  many  of  them  would  be  alienated  from  the  loyal  support 
which  they  had  largely  given  to  the  American  Government.  All  the 
existing  records,  titles,  deeds  and  public  documents,  and  evidences  of 
private  rights  are  in  the  Spanish  language;  none  of  them  are  in  the 
English  language. 

The  immediate  imposition  of  a  new  language  upon  a  people  by  the 
strong  hand  of  the  law  is  calculated  to  excite  a  deep  resentment  and 
one  far  more  disastrous  in  its  effect  than  any  advantages  which  might 
accrue  from  such  a  course.  It  is  easier  for  American  lawyers  here, 
surrounded  by  an  atmosphere  of  Spanish-speaking  people,  to  acquire 
the  Spanish  language  than  it  is  for  the  Filipinos  among  their  own  peo- 
ple to  acquire  the  English  language,  although  the  Filipinos  are  dis- 
playing great  avidity  in  gaining  that  accomplishment.  While  it  is 
true  that  the  great  mass  of  the  Filipino  people  are  unable  to  speak  the 
Spanish  language,  it  is  equally  true  that  substantially  all  the  litera- 
ture of  the  islands  is  in  the  Spanish  language  and  that  all  the  edu- 
cated, cultivated  people  of  the  islands  speak  and  read  it.  In  every 
community  of  civilized  Filipinos  more  or  less  people  arc  to  be  found 
who  speak  the  Spanish  language,  and  through  them  the  medium  of 
conununication  to  the  rest  of  the  conununity  is  open.  A  probationary 
period  of  Ave  years  would  enable  the  Filipinos  to  equip  themselves  in 


1>12  KKPOUTS    OK    TIIK    CIVIL    OOVKUNMKNT 

:i  knowIiHlo-c  of  Eiio-lish,  so  that  at  tlio  ('xpii'ation  of  that  time  they 
would  not  he  siihjectod  to  the  haixlslii])  that  would  come  from  the 
immediate  imposition  of  an  alien  lanouaoe.  It  is  estimated  that  per- 
haps not  more  than  one-half  million  Filipinos  speak  the  Spanish  lan- 
guajie,  but  it  is  doubtless  true  that  not  10,000  inhsibitants  of  the 
islands  outside  of  the  American  army  speak  the  English  language. 
The  half  iiiillion  ought  not  immediately  to  be  compelled  to  change 
their  language  to  that  of  the  10,000.  The  Commissioners  arc  unani- 
mous in  the  opinion  that  this  important  question  was  rightly  deter- 
mined in  the  conclusion  expressed  in  section  12. 

The  sections  relating  to  the  important  subject  of  habeas  corpus  were 
enacted  in  ol)edience  to  explicit  directions  contained  in  our  instruc- 
tions from  the  President  of  the  United  States.  No  objections  to  these 
provisions  were  made  at  any  public  hearing  or  otherwise  by  military 
authorities  or  by  civilians. 

It  is  unnecessary  to  set  forth  in  detail  the  other  important  subjects 
dealt  with  in  the  Code  of  Procedure.  But  it  may  be  useful  briefly 
to  point  out  some  of  the  most  important  provisions  involving  radical 
departures  from  the  Spanish  procedure  and  in  some  respects  from 
the  procedure  in  effect  in  many  of  the  American  States.  Challeng- 
ing of  judges  and  other  court  officials  is  abrogated.  Civil  liability  of 
judges  and  justices  of  the  peace  for  error  in  their  judicial  determina- 
tions is  done  away  with.  The  sittings  and  proceedings  of  every  court 
of  justice  are  made  public  except  when  testimony  is  of  an  indecent 
character  such  as  to  require  the  exclusion  of  the  public  in  the  interest 
of  morality.  Adequate  provision  is  made  for  the  admission  of  mem- 
bers of  the  bar  upon  proper  determination  of  their  qualitication. 

While  the  conditions  here  are  for  the  present  unsuited  to  the  intro- 
duction of  the  Anglo-Saxon  system  of  jury  trials,  provision  is  made 
for  the  selection  of  assessors  from  the  residents  of  the  municipality  or 
province  best  fitted  by  education,  natural  ability  and  reputation  for 
probity  to  assist  in  the  trial  of  actions  and  to  advise  the  judge  in  his 
determination,  and  securing  the  right  of  review  of  the  facts  by  a 
higher  court  in  case  the  assessors  shall  certify  that  in  their  opinion 
the  finding  of  facts  and  the  judgment  are  wrong.  The  provisions  for 
assessors  apply  in  courts  of  justices  of  the  peace  as  well  as  in  the 
courts  of  first  instance.  This  system  is  one  that  was  adopted  under 
the  treaty  of  Berlin  for  use  in  Samoa  under  the  protectorate,  and  has 
long  been  usefully  employed  in  British  and  German  colonial  posses- 
sions. The  employment  of  assessors  is  useful  not  merely  as  an  aid  to 
the  judge  but  also  as  giving  a  greater  safeguard  to  the  parties,  and  as 
a  means  of  education  for  the  people. 

Pleadings  have  been  greatly  simplified  and  are  confined,  on  the  part 
of  the  plaintiff',  to  the  complaint  and  the  demurrer  to  the  answer;  and 
on  the  part  of  the  defendant  to  the  demurrer  to  the  complaint  and  to 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  213 

the  answer.  Ample  provisions  are  made  for  amendments  of  all  plead- 
ings at  any  stage  of  the  litigation,  with  or  without  terms,  as  ma}'  be 
deemed  just.  The  pleadings  and  proceedings  are  more  analogous  to 
those  in  a  court  of  equity  in  the  United  States  than  to  those  in  a  court 
of  law  where  jury  trials  are  invoked.  Trials  in  the  courts  of  first 
instance  are  before  the  judge  with  or  without  assessors,  as  the  parties 
may  demand. 

No  appeal  can  be  taken  from  the  court  of  first  instance  to  the  supreme 
court,  except  by  bill  of  exception,  and  then  only  after  final  judgment 
disposing  of  the  action  in  the  court  of  first  instance.  This  provision 
puts  an  end  to  the  infinite  series  of  interlocutory  appeals  that  have 
heretofore  delayed  justice  in  these  islands.  Provision  is  made  for 
attachments  and  arrests  of  the  bodies  of  defendants  in  proper  cases, 
and  for  the  granting  of  injunctions,  the  latter  a  remedy  which  did  not 
before  exist  here.  Other  actions  seeking  exceptional  remedies,  such 
as  the  appointment  of  receivers,  partition  of  real  estate,  the  recovery 
of  an  office  or  franchise  usurped,  certiorari  proceedings,  mandamus, 
prohibition,  punishment  for  contempt,  exercise  of  the  right  of  eminent 
domain,  foreclosure  of  mortgages,  and  manual  delivery  of  personal 
property,  are  all  provided  for,  largely  upon  the  lines  of  such  proceed- 
ings in  America,  with  necessary  modifications  to  suit  them  to  conditions 
here. 

The  rules  of  evidence  and  the  methods  of  taking  affidavits  and  depo- 
sitions and  the  perpetuation  of  testimony  are  provided  for  in  detail, 
as  are  also  the  methods  of  enforcing  the  attendance  of  witnesses  and 
the  issuing  and  service  of  all  process,  preliminary,  mesne  and  final. 
Under  the  existing  Spanish  procedure  the  defeated  party  is  visited 
with  not  only  the  ordinary  costs  of  court,  but  the  fees  of  lawyers  of 
the  successful  party.  Under  this  provision  very  great  abuses  have 
occurred,  and  enormous  fees  have  been  taxed  and  allowed  as  costs 
against  the  defeated  party,  which  the  law^^er  would  have  never  ven- 
tured to  charge  against  his  client  if  his  client  had  them  to  pay.  This 
evil  has  been  corrected.  Costs  are  restricted  in  taxation  to  specified 
items  after  the  analogous  provisions  in  that  respect  in  force  in  the  Fed- 
eral courts  of  the  United  States.  Under  the  Spanish  procedure  the 
supreme  court  was  constantly  occupied  with  hearing  petty  appeals  on 
minor  interlocutory  matters  and  with  reviewing  the  facts,  judgments, 
and  sentences  in  practically  every  criminal  case  without  regard  to  the 
question  of  whether  any  appeal  had  been  prayed  for  by  either  party, 
and  irrespective  of  the  fact  that  in  criminal  proceedings  the  defendant 
had  admitted  his  guilt  in  open  court.  All  this  is  done  away  with  in 
the  code  by  provisions  that  the  hearings  in  the  supreme  court  sha.i  be 
confined  to  matters  of  law,  with  certain  important  exceptions  therein 
specified,  so  that  no  case,  civil  or  criminal,  reaches  the  supreme  court 
until  after  its  final  determination  in  the  court  below,  and  then  not 


214  RFPORTS    OK    TlIK    ('[VIL    (JOVKUNMKNT 

unless  ono  piirty  or  tlio  other  has  lilod  a  bill  ol"  exceptions  or  other 
document  entitliMy-  the  party  to  a  hearing  in  the  supreme  court,  except 
in  capital  cases,  in  which  a  review  of  the  facts  by  the  supreme  court  is 
provided  for  in  all  cases.  The  supreme  court  is  prohibited  from 
reversino-  an}"  judgment  on  formal  or  technical  grounds  or  for  such 
error  as  has  not  prejudiced  the  real  rights  of  the  excepting  party. 
The  foregoing  remarks  relate  mainly  to  proceedings  in  actions. 

The  code  likewise  provides  for  special  proceedings,  such  as  habeas 
corpus,  appointment  and  removal  of  guardians,  trustees,  administra- 
tors, executors,  the  administration  of  estates  of  all  kinds,  and  the 
adoption  and  custody  of  minors.  No  bankruptc}^  provisions  are 
provided  for,  in  view  of  the  fact  that  Congressional  legislation  may 
soon  extend  the  provisions  of  the  national  bankruptcy  act  of  the 
United  States  to  these  islands  in  some  moditied  form.  The  fees  of  all 
officers  connected  with  courts  are  provided  for  in  detail,  and  are  not 
excessive.  Forty-three  forms  have  been  incorporated  into  the  code, 
which  are  made  exceedingly  simple  and  free  from  technicality,  not 
only  for  the  purpose  of  preventing  the  record  from  being  encumbered 
with  antique  and  voluminous  Spanish  forms,  but  also  for  showing  to 
the  Filipinos  a  far  more  concise  and  better  method  of  stating  their 
pleadings  and  processes. 

The  entire  subject  of  fees  collected  by  officials  has  been  an  embar- 
rassing one.  Experience  has  shown  that  it  has  been  very  difficult 
here  to  prevent  the  extortion  of  unreasonable  and  unlawful  sums  by 
all  officers  compensated  by  fees.  After  full  consideration  it  has  been 
deemed  advisable  to  pay  salaries  in  lieu  of  fees  to  all  provincial  fiscals, 
clerks  of  courts  and  their  assistants,  and  all  other  employees  pertain- 
ing to  the  administration  of  justice.  All  fees  charged  inure  to  the 
benefit  of  the  Government,  and  a  rigid  S3^steip  of  accounting  to  secure 
the  payment  of  such  fees  to  the  proper  person  has  been  provided. 

The  adoption  of  the  new  code  has  been  awaited  with  great  anxiety 
by  judges  and  lawyers  and  that  portion  of  the  pu])lic  interested  in 
litigation.  It  is  confidently  anticipated  that  it  will  facilitate  the 
administration  of  justice  to  a  marked  degree  and  diminish  the  delay 
and  expense  which  have  heretofore  attended  all  legal  proceedings. 

CRIMINAL   CODE. 

The  preparation  of  a  new  criminal  code  has  been  intrusted  to  Com- 
missioner Wright,  and  the  first  draft  has  already  been  prepared  and  is 
ready  for  the  action  of  the  commission  as  soon  as  it  is  possible  to  reach 
it.  The  criminal  code,  unlike  the  code  of  civil  procedure,  is  based 
largel}"  upon  the  existing  Spanish  system  and  only  makes  such  changes 
as  are  deemed  necessary  to  fit  it  to  modern  views  of  criminal  law  and 
to  the  new  political  relations  of  the  people  of  the  islands. 


OF    THK    PHILIPPINE    ISLANDS,    UX)0-1903.  215 

CODK   OF   CRIMINAL   PROCEDURE. 

The  preparation  of  a  new  code  of  criminal  procedure  was  likewise 
intrusted  to  Commissioner  Wright,  and  the  work  has  already  been 
put  into  form  and  will  be  taken  up  by  the  coumiission  as  soon  as  prac- 
ticable. But  General  Orders,  No.  58,  issued  by  the  military  governor 
on  April  23,  1900,  contains  the  outline  of  a  code  of  criminal  procedure, 
greatly  simplifying  the  original  Spanish  procedure  and  furnishing 
much-needed  relief  temporarily,  so  that  the  work  of  perfecting  the  new- 
code  of  criminal  procedure  is  not  of  such  pressing  necessity  as  other- 
wise would  be  the  case. 

CIVIL   CODE. 

The  Spanish  laws  governing  business  transactions  as  set  forth  in 
the  Spanish  commercial  code,  civil  code,  and  mortgage  law  are  still  in 
force,  speaking  in  general  terms,  except  so  far  as  they  have  been  modi- 
fied by  legislation.  It  is  the  intention  of  the  commission,  as  soon  as 
practicable,  to  make  a  complete  revision  thereof  into  a  single  civil 
code,  but  without  changing  the  fundamental  principles  of  the  civil  law 
which  here  prevail.  This  we  understand  to  be  in  accordance  with  the 
spirit  of  the  instructions  given  to  us  by  the  President. 

REGISTRATION    OF   LAND   TITLES. 

By  virtue  of  section  9  of  act  No.  133,  enacted  May  22, 1901,  provin- 
cial treasurers  appointed  under  the  provincial  government  act  are 
required  to  perform  the  duty  of  registrar  of  property  for  each  province 
pending  the  appointment  of  a  regular  registrar  for  the  province,  under 
a  new  system  of  .land  registration,  and  it  is  made  the  duty  of  such  reg- 
istrar to  take  possession  of  all  books  and  papers  relating  to  the  office  of 
registrar  of  property,  to  make  an  orderly  arrangement  thereof,  and  to 
make  diligent  search  for  such  books  and  papers  belonging  to  the  office 
as  are  not  found  therein.  This  enactment  still  left  those  provinces  in 
which  provincial  government  had  not  been  organized  unj.3rovided  with 
an  official  authorized  to  perform  the  duties  of  registrar  of  property. 
Accordingly,  by  act  No.  193,  enacted  August  10,  1901,  the  fiscal  or 
prosecuting  officer  of  any  province  in  which  civil  government  has  not 
been  organized,  whether  such  fiscal  was  temporarily  or  permanently 
appointed,  is  authorized  to  perform  the  duties  of  registrar  of  property 
for  the  province,  pending  tlie  appointment  of  a  registrar  under  a  new 
system  of  land  registration,  and  his  duties  in  that  respect  were  made 
as  a})ove  stated.  /  The  temporary  registrars  thus  provided  for  will  per- 
form their  duties  in  accordance  with  the  existing  Spanish  law  for  the 
registration  of  land  titles,  every  part  of  the  archipelago  being  thus 
provisionally  supplied  with  a  means  of  registration  of  titles.  In  the 
opinion  of  the  commission  a  new  and  complete  system  of  investigation 


*21(')  REPORTS    OK    THK    CIVIL    GOVERNMENT 

and  roi'ord  of  land  titlo.s  is  indispensal)le  for  the  .security  of  titles  and 
for  tlie  devolopnient  of  the  i.slands.  The  so-called  ''Torrens  .system," 
which  has  long  been  employed  in  all  the  Australian  colonics  and  in 
New  Zealand  and  has  recently  been  made  an  optional  provision  of  the 
laws  of  the  States  of  Illinois,  Massachusetts,  and  Minnesota,  is  believed 
to  be  especiall}'  adapted  to  the  situation  here,  and  it  is  the  present  pur- 
pose of  the  commission  to  enact  a  complete  .system  of  registration  on 
the  general  lines  of  the  Torrens  system. 

INSULAR   COLD-STORAGE   AND   ICE   PLANT. 

Early  in  the  year  1899,  the  Secretary  of  War  having  directed  Major- 
Geueral  Otis,  then  in  command  of  the  Division  of  the  Philippines,  to 
erect  a  refrigerating  and  ice  plant  in  Manila,  payment  of  the  cost  of 
such  erection  to  be  made  from  insular  revenues,  plans  were  entered 
upon  for  the  cons'truction  of  the  plant.  The  estimated  cost  was 
$400,000.  Foi  reasons  unnecessary  to  be  stated  in  this  report  the 
expense  of  construction  was  far  greater  than  was  originally  anticipated. 

The  construction,  and  purchase  of  necessary  material,  machinery, 
and  equipment  were  all  carried  on  under  the  direction  of  the  War 
Department  and  under  the  immediate  supervision  of  a  Regular  Army 
officer  detailed  for  that  purpose.  The  plant  was  so  far  completed  that 
its  operation  could  be  commenced  in  June,  1901,  although  after  that 
time  considerable  work  of  construction  was  necessary  and  some  is  still 
necessary.  The  total  cost,  including  the  necessary  equipment  for 
taking  beef  and  other  supplies  for  the  use  of  the  army  from  ships 
and  transporting  them  to  the  plant,  and  for  delivering  them  where 
desired  b}^  the  army,  aggregated  $656,680,  gold  values,  all  of  which 
was  paid  from  insular  revenues.  The  plant  has  a  capacity  of  about 
428,000  cubic  feet  of  cold  storage  and  is  capable  of  producing  1,200 
or  more  tons  of  ice  per  month. 

The  primary  purpose  of  constructing  the  plant  was  to  furnish  ice 
and  cold  storage  for  the  benefit  of  the  Army  of  the  United  States. 
As  the  plant 'approached  completion  the  question  of  its  administration 
became  one  of  large  practical  importance.  The  question  was  accord- 
ingly referred  to  the  Secretary  of  War  by  the  coumiission,  and  the 
Secretar}^  of  War  determined  that  the  plant  should  be  transferred  to 
the  insular  government  and  should  be  administered  by  it,  but  that  it 
should  make  a  contract  for  furnishing  such  ice  and  cold  storage  as 
should  be  needed  for  the  use  of  the  arm}'  in  the  Philippine  Islands, 
the  contract  to  be  entered  into  by  the  major-general  commanding  on 
behalf  of  the  army  and  by  the  commission  on  behalf  of  the  insular 
government.  Accordingly  an  agreement  was  entered  into  on  «Iune  20, 
1901,  between  the  commission  on  behalf  of  the  insular  government  and 
Maj.  C.  P.  Miller,  quartermaster,  of  the  United  States  Army,  on  behalf 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  217 

of  the  avm}\  for  the  lease  of  195,520  cubic  feet  of  cold  storage  from 
July  1,  1901,  to  June  30,  1902,  at  a  monthly  rental  of  ^15,000,  gold; 
and  at  the  same  time  another  contract  was  made  by  the  commission 
on  behalf  of  the  insular  government  and  Col.  C.  A.  Woodruff,  assist- 
ant commissary-general,  for  a  monthly  supply  of  350  tons  of  ice  to 
the  army  from  July  1,  1901,  to  June  30,  1902,  at  the  rate  of  |10 
per  ton,  provided  that  one-half  of  the  amount  received  by  the  plant 
for  ice  sold  to  other  parties  over  and  above  the  350  tons  contracted 
for  by  the  United  States  Army  should  be  deducted  from  its  ice  bill. 

Both  these  contracts  were  by  their  terms  subject  to  the  approval  of 
Major-General  MacArthur,  commanding.  When  these  contracts  were 
submitted  to  Major-General  MacArthur  he  did  not  feel  at  liberty  to 
approve  them,  in  view  of  the  fact  that  he  was  about  to  be  succeeded 
by  Major-General  Chaffee,  and  left  the  contracts  in  suspense.  There- 
upon, in  order  that  the  army  might  immediatelj^  receive  the  benefit  of 
the  plant,  a  provisional  contract  was  entered  into  between  the  same 
parties,  which  was  approved  by  Major-General  MacArthur,  that  cold 
storage  and  ice  should  be  furnished  in  accordance  with  the  terms  of 
the  two  contracts  above  set  forth  until  Major-General  Chaffee  should 
have  an  opportunity  to  review  the  subject,  and  a  new  contract  or  con- 
tracts should  be  entered  into,  if  deemed  advisable.  The  cold-storage 
space  which  had  been  previously  provided  for  the  benefit  of  the  army, 
largely  by  refrigerating  ships,  and  to  some  extent  by  private  refrig- 
erating plants  in  the  city  of  Manila,  was  immediately  made  use  of  in 
the  new  plant,  and  it  was  ascertained  that  substantially  the  whole  space 
provided  for  cold  storage  in  the  new  plant  would  be  needed  for  the  use 
of  the  army,  and  that  the  original  contract  secured  to  the  arm}'  very 
much  less  space  than  would  actuall}^  be  required.  It  also  became 
apparent  that  350  tons  of  ice  per  month  would  not  meet  the  require- 
ments of  the  army.  The  necessitj'  for  a  revision  of  the  contracts  thus 
become  evident. 

The  theory  of  the  original  contracts  had  been  that  the  armv  should 
pay  enough  to  meet  all  the  expenses  of  operating  the  plant,  including 
a  reasonable  allowance  for  depreciation,  and  that  if  the  insular  gov- 
ernment should  be  able  to  obtain  further  income  from  outside  parties 
such  income  could  be  appropriated  as  interest  upon  its  investment  or 
as  a  sinking  fund,  to  provide  ultimately  for  reimbursement  of  money 
invested,  subject  always  to  the  contingency  of  destruction  by  earth- 
quakes, which  is  very  possible,  in  view  of  the  construction  of  the 
plant  and  the  histor}'  of  earthquakes  in  the  city  of  Manila.  In  con- 
sideration of  all  the  circumstances,  a  new  agreement  between  the 
insular  government  and  the  army  has  been  entered  into,  which  agree- 
ment has  received  the  approval  of  the  commanding  general,  Major- 
General  Chaffee,  by  the  terms  of  which  the  army  takes  the  whole  of 


218  REPORTS    OF    THE    (IIVIL    (JOVKRNMENT 

tho  piosont  availiiblo  cold-storage  space  in  the  i)liint  at  a  monthly 
rental  of  3^  cents  per  cubic  foot,  making  its  total  monthly  rental  for 
<'old  storage  !?15, 012.58.^,  and  it  is  to  receive  as  much  ice  as  it  may 
call  for,  up  to  the  full  capacity  of  the  plant,  at  the  price  of  $10 
per  ton. 

It  will  be  seen  that  the  aggregate  cost  of  the  cold  storage  to  the 
army  under  this  new^  contract  is  substantiall}^  the  same  as  under  the 
first  two  contracts,  but  that  the  army  receives  very  much  larger  space, 
so  that  the  cost  per  cubic  foot  to  the  army  is  practically  one-half  what 
it  was  under  the  former  contract,  while  the  assured  income  to  the 
insular  government  is  substantially  the  same.  The  price  of  cold  stor- 
age under  this  contract  is  far  less  per  cubic  foot  than  it  has  ever 
before  been  to  the  army  here,  and  the  price  of  ice  is  one-half  what 
has  heretofore  been  paid  to  local  producers.  The  insular  government 
also  furnishes  ice  to  all  army  officers  and  to  civil  employees  at  the 
same  price,  one-half  cent  per  pound,  gold. 

It  was  the  opinion  of  the  commission  that,  in  view  of  the  very  great 
expense  of  living  in  Manila,  army  officers  necessarily  stationed  here 
and  employees  of  the  Government  living  upon  modest  salaries  should 
receive  the  benefit  of  practically  cost  price  for  the  ice,  which  is  one  of 
the  prime  necessaries  of  life  here.  The  question  of  selling  ice  to 
other  persons  than  those  named  has  not  been  fully  determined.  It  is 
not  deemed  just  that  a  Government  institution,  erected  out  of  taxes 
paid  by  the  people,  should  enter  into  competition  with  industries 
before  established  and  compelled  to  pay  duty  upon  the  coal  and  other 
material  used  in  the  manufacture  of  ice.  During  the  two  months  of 
the  operation  of  the  plant  its  superintendent  has  sold  ice  to  outside 
persons  at  1  cent  per  pound,  gold,  delivered  at  the  plant,  while  the 
private  plants  engaged  in  the  business  of  manufacturing  and  selling 
ice  sell  it  at  1  cent  per  pound  delivered  at  the  residence  of  the  cus- 
tomer. It  is  thought  to  be  no  hardship  upon  local  producers,  and  no 
unjust  competition  with  them,  to  continue  sales  upon  the  basis  named. 
It  is  apparent  that  the  local  dealers  will  control  the  market— in  view 
of  the  fact  that  they  deliver  the  ice  at  the  residences  of  their  custom- 
ers, while  the  insular  plant  does  not — provided  they  furnish  equally 
pure  ice  and  give  full  weight  in  their  sales.  The  arrangement  sug- 
gested can  be  considered  as  a  competition  only  to  the  extent  of  secur- 
ing a  high  deeree  of  efficiency  and  entire  fair  dealing  on  the  part  of 
the  local  producers  and  venders. 

The  contract  with  the  Army  expires  on  the  30th  day  of  June,  1902, 
and  its  practical  workings  will,  by  the  expiration  of  that  time,  have 
demonstrated  the  amount  of  space  and  the  quantity  of  ice  needed  by 
the  Army  and  will  have  made  more  certain  the  actual  expense  of 
operating  the  plant.     If  the  contract  is  found  to  be  in  any  respect 


OF    THE    PHILIPPINE    ISLANDS,    1900-190:3.  219 

unduly  burdensome  to  the  Army  or  to  the  insular  government,  it  can 
then  be  modified  for  the  succeeding  3^ear  as  experience  may  demon- 
strate to  be  wise  and  just.  The  estimate  of  Captain  Roudiez,  who  is 
now  in  charge  of  the  plant  under  assignment  from  the  Regular  Army 
and  who  has  had  charge  of  its  construction,  is  that  the  operating 
expenses  for  the  succeeding  quarter,  commencing  October  1,  1901, 
will  be  approximately  $50,000,  without  making  any  allowance  for 
accident,  depreciation,  or  income  upon  the  investment.  So  far  as  two 
months'  operation  can  demonstrate,  the  plant  is  sufficient  and  capable 
of  meeting  the  expectation  of  its  designers.  A  copy  of  the  last- 
named  agreement  now  in  force  is  hereto  annexed  and  marked 
Appendix  Q. 

CURRENCY   NOW   IN   USE. 

In  our  last  report  it  was  stated  that  the  abnormal  conditions  in 
northern  China,  together  with  the  increased  value  of  silver  in  the 
general  market  of  the  world,  had  increased  the  demand  for  Mexican 
dollars  to  such  an  extent  that  the  Government  deposit  of  Mexican 
currency  in  the  local  banks  was  being  rapidly  depleted,  the  silver 
being  withdrawn  for  export  to  China  and  being  replaced  b}'  money  of 
the  United  States,  and  that  if  that  process  were  allowed  to  continue 
without  interruption  the  insular  deposits  of  silver  would  become 
exhausted  and  it  would  be  no  longer  practicable  to  maintain  the  uni- 
form ratio  of  2  to  1  which  had  been  prevailing  for  several  months 
preceding  the  date  of  that  report,  and  that  for  the  purpose  of  pre- 
venting further  depletion  of  the  insular  deposits  of  silver  acts  had 
been  passed  providing  for  the  payment  of  salaries  under  the  civil 
service  of  the  islands  in  money  of  the  United  States  and  imposing  an 
export  tax  of  10  per  cent  upon  Mexican  dollars.  Appropriations 
were  likewise  mainly  made  in  money  of  the  United  States.  As  stated 
in  the.  former  report,  the  imposition  of  the  customs  export  tax  on 
Mexican  silver  was  a  purely  provisional  and  temporary  measure  for 
the  purpose  of  enabling  the  Government  to  hold  the  ratio  of  exchange 
between  the  two  moneys  at  a  uniform  rate  until  Congress  shoidd  be 
enabled  to  provide  a  system  of  currencj'  for  the  islands.  Congress 
having  taken  no  action  upon  the  matter  at  its  last  session,  the  local 
legislation  remained  unchanged.  Meanwhile  the  demand  for  Mexi- 
can dollars  in  China  and  other  parts  of  the  world  became  less  and 
their  market  price  diminished  materially.  These  causes,  coupled  with 
the  legislation  referred  to,  began  eventually  to  cause  a  large  accumu- 
lation of  Mexican  and  insular  currency  in  the  Government's  deposit. 
The  following  table  shows  the  amounts  of  the  Government  deposits  in 
Mexican  money  and  in  money  of  the  United  States,  at  stated  periods, 
from  the  17th  day  of  November,  1900,  down  to  the  1st  day  of  Octo- 
ber, 1901,  so  as  to  form  a  complete  record  of  those  deposits,  when 


220 


KKI'OKTS    OK    TllK    CIVIL    IJOVKRNMKNT 


taken  in  fonnec-tioM  with  the  diitii  given  in  the  former  report  from  the 
18th  day  of  Auj^ust,  1900,  to  the  1st  day  of  October,  1001: 

STATEMKNT   OF    PUBLIC    CIVIL    FUNDS. 

Bank  balances,  semiweekly,  from  the  21st  of  November,  1900,  to  the  9th  of  October,  1901. 


Date. 


November  17  . 
November  21 . 
November  21  . 
November  27  . 
November  2S  . 
December  1... 
December  5. . 
Decembers.. 
December  12. 
December  15. 
December  19. . 
December  22.. 
December  26.. 
December  29.. 

January  2 

Januarj'5 

January  9 

January  12 

January  10 

January  19 

January  22 

January  20) 

January  30 

February 2 

February  6.... 

February  9 

February  13... 
February  15... 
February  20  . 
February  23  . . 
February  27  . . 

March  2 

March  6 

March  9 

March  13 

March  16 

March  20 

March  23 

March  27 

March  30 

April  3 

April  6 

April  10 

April  13 

April  17 

April  20 

April  21  

April  27  

May] 


Hongkong   and    Shanghai 
bank. 

Chartered  Bank  of  India,  Aus- 
tralia and  China. 

Mexican. 

Gold. 

Mexican. 

Gold. 

$290,420.35 

12,234,302.76 

J2, 586, 653. 87 

9787,500.94 

380,504.62 

1,964,508.90 

2, 670, 404. 07 

672, 867. 96 

610, 127. 48 

1,981,461.23 

2,697,314.25 

668, 340. 96 

567,886.83 

1,994,883.87 

2,730,674.36 

659,673.61 

579,411.33 

2, 000, 470. 24 

2,625,480.44 

720,445.90 

636,277.54 

2,010,142.71 

2, 765, 862. 70 

722,922.11 

740,258.02 

2,014,695.43 

2,822,116.16 

726, 396. 19 

795, 972. 22 

2,030,338.48 

2,643,103.25 

833,271.70 

2, 686, 423. 08 

2,553,392.77 
2, 159, 686. 25 

836  ''64  43 

9,813.29 

2,707,262.03 

908, 785. 08 

68,743.75 

2, 420, 272. 19 

2, 224, 971. 74 

682, 169. 79 

30, 129. 64 

2,645,375.49 

1,645,432.57 

809,964.64 

65, 719. 59 

2,646,561.82 

1,692,768.65 

820, 897. 73 

49,482.30 

2,472,119.45 

1,530,622.16 

894, 716. 33 

108, 466. 49 

2,427,119.45 

1,679,020.80 

916, 653. 40 

27,116.59 

2, 392, 674. 40 

1,702,448.94 

9.51,010.21 

27,116.59 

2, 392, 574. 40 

1,716,069.00 

1,023,821.53 

29.94 

2, 260, 793. 37 

1,703,264.84 

1,074,689.28 

29.94 

1,768,941.68 

1,731,049.09 

1,075,064.17 

990.30 

1,639.274.78 

1,736,861.44 

874, 295. 31 

990.30 

1,639,274.78 

1,838,860.16 

908,352.08 

16, 526. 75 

1,649,274.78 

1,825,690.11 

996, 104. 14 

101,901.21 

1,634,274.78 

1, 936, 852. 03 

983, 117. 83 

159,879.39 

1,649,274.78 

1,947,444.84 

1, 037, 681. 34 

250, 480. 21 

1,649,274.78 

2, 013, 642. 66 

1,008,996.02 

369, 603. 06 

1,659,274.78 

2,057,099.89 

1,099,094.85 

424,299.03 

1,687,239.86 

2,145,054.97 

1,103,169.40 

510,763.59 

1,712,098.73 

2, 005, 164. 16 

1,108,272.65 

583, 910. 88 

1,733,640.63 

2,070,260.91 

1,108,272  65 

633, 718. 66 

1,720,100.09 

2, 040, 014. 53 

1,037,009.68 

723,930.50 

1,743,039.54 

2, 176, 982. 28 

1,036,069.68 

868, 141. 38 

1,768,857.56 

2,288,482.89 

1,030,009.08 

972,615.83 

1,797,151.93 

2,391,033.93 

1,030,009.68 

983, 474. 98 

1,806,824.43 

2,208,840.41 

1,052,698.64 

1,085,783.87 

1,741,724.43 

2, 367, 099. 57 

1,060,187.29 

1,125,351.84 

1,754,865.82 

2,364,344.30 

1,087,032.62 

1,218,201.64 

1,752,416.82 

2, 502, 018. 98 

1,108,761.78 

1,262,006.91 

1,750,121.82 

2,478,401.06 

1,084,292.35 

1,364,288.44 

1, 741, 605. 16 

2, 606, 466. 94 

1,115,582.11 

1,395,456.70 

1,750,605.16 

2,624,607.86 

1,142,775.86 

1, 440, 865. 15 

1,750,605.16 

2,675,647.54 

1,166,003.66 

1,460,960.27 

1,768,605.16 

2, 716, 021. 94 

1, 194, 090. 79 

1,506,592.28 

1,748,214.00 

2, 786, 588. 53 

1,122,819.86 

1,556,586.00 

1,753,214.00 

2,891,940.26 

1,152,994.63 

1,587,157.78 

1,750,649.96 

2, 950, 933. 33 

1,170,995.34 

1,659,205.46 

1,747,921.46 

3,063,348,00 

1,205,604.31 

1,745.265  14 

1,741,834.61 

3, 140, 598. 90 

1,230,082.72 

1,850,780.87 

1,835,863.45 

3,237,921.38 

1,264,316.95 

1,917,955.49 

1,790,857  89 

3,338,179.77 

1,117,572.10 

OF    THE    PHILIPPINE    ISLANDS,    1900-1903. 


221 


Bank  balances,  semiiveeJcly,  from  the  21st  of  November,  1900,  to  the  9tli  of  October,  1001- 

Continued. 


Date. 


May  4 

Mays 

May  11 

May  15 

May  18 

May  22 

May  25 

May  29 

June  1 

June  5 

June  8 

June  12 

June  15 

June  19 

June  22 

June  26 

Julyl 

July  6 

July  10 

July  18 

July  20 

July  24 

July  27 

August  1 

Augusts 

August  7 

August  10 

August  14 

August  17 

August  21 

August  24 

August  28 

September  2 . . 
September  4 . . 
September  7 . . 
September  1 1 . 
September  14  . 
September  IS . 
September  21  . 
September  28 . 

Oetober  2 

October  5 

October  9 


Hongkong  and  Shanghai 
bank. 


Mexican. 


m, 


034, 106. 86 
083,284.04 
154,518.40 
236, 840. 38 
296,981.72 
355, 654. 30 
502, 134. 28 
585, 710. 40 
628,110.95 
695, 884. 57 
727, 434. 79 
797, 687. 86 
12,982.27 
986,161.20 
060,823.43 
184, 587. 17 
254,201.23 
351,083.18 
425,234.83 
617, 458. 01 
717, 824. 26 

769. 740. 70 

847. 277. 71 
729, 655. 01 
795, 552. 78 
832, 028. 46 
813,430.46 
935, 986. 36 
990,191.71 
012, 688. 21 
087,496.11 
129,057.53 
170, 207. 11 
254, 539. 95 

350. 321. 34 

464. 680. 35 
,553,767.16 
,  645, 333. 60 

724,804.74 
,522,586.00 
,604,677.76 
1,711,928.86 
:,  833, 699. 03 


Gold. 


51,766,788.43 
1,752,174.96 
1, 752, 853. 64 
1,678,986.13 
1,625,498.77 
1,612,057.26 
1,569,371.08 
1,548,086.25 
1,511,202.59 
1, 498, 159. 59 
1,495,469.79 
1,466,120.47 
1,374,471.82 
1,333,001.57 
1,278,110.38 
1,271,821.67 
1,251,255.12 
1,299,754.25 
1,463,394.92 
1,596,708.70 
1,630,232.52 
1,621,150.02 
1,619,442.61 
1, 569, 589. 13 
1,577,565.49 
1,558,765.49 
1,505,346.89 
1,508,447.80 
1,170,057.04 
1,162,245.12 
1,146,820.37 
1,137,647.89 
1,112,397.89 
1,118,896.63 
1,124,633.04 
1,143,397.39 
1,144,775.71 
1,169,846.69 
1,168,965.54 
1,079,604.22 
1,120,865.67 
1,120,805.67 
'1, 120, 812. 67 


Chartered  Bank  of  India,  Aus- 
tralia and  China. 


Mexican. 


13,451,784.88 
3, 483, 062. 81 
3,714,311.49 
3,456,391.69 
8,532,475.33 
3,640,994.86 
3, 698, 399. 50 
3,747,935.82 
3, 777, 246. 71 
3,814,352.22 
3, 882, 142. 67 
3, 937, 563. 42 
4,017,313.34 
3, 959, 256. 57 
4,014,  .'79.62 
4,078,230.37 
4, 345,  JOO.  76 
4,448,197.12 
4, 169, 024. 28 

4. 688. 659. 35 
4,671,146.16 
4,740,894.78 
4,876,934.23 
4, 922, 663. 54 
4,980,155.54 
4, 932, 152. 30 
4,776,993.07 

4. 858. 208. 36 
4,868,606.92 
4,901,830.70 
4,957,791.93 
5,014,649.44 
5,051,755.86 
5,091,081.52 
5,174,552.28 
5, 229, 133. 32 
4,852,870.72 
4,803,583.47 
4, 837, 905. 65 
4, 523, 445. 78 
4,577,409.43 
4,690,800.81 
4, 760, 525. 50 


Gold. 


11,135,673.24 
1,153,183.84 
1,181,814.28 
1,199,495.86 
1,222,086.79 
1,056,991.20 
1,082,124.87 
1,097,417.91 
1,074,775.65 
1,095,984.08 
1,135,977.93 
1,162,530.05 
1,025,002.54 
1,046,837.29 
1,061,352.00 
1,085,099.03 
1,119,720.17 
1,101,161.29 
1,126,953.22 
1,191,940.53 
1, 208, 515. 38 
1,238,929.26 
1,260,627.46 
1,080,748.77 
1,097,374.56 
1,110,826.57 
1, 134, 958. 94 
1,141,963.95 
1,331,941.02 
1,342,920.67 
1,361,605.11 
1,379,900.98 
1,383,079.21 
1, 390, 609. 21 
1,413,191.25 
1,421,255.51 
1,394,068.61 
1,357,624.42 
1,343,558.12 
1,335,387.41 
1,325,866.22 
1,329,945.20 
1,267,874.56 


The  circumstances  that  led  to  the  imposition  of  the  10  per  cent 
export  duties  upon  Mexican  silver  having-  ceased  to  operate,  act  No. 
218  was  passed  on  the  31st  day  of  August.  1901,  repealing  that  export 
tax.  At  the  present  valuation  of  Mexican  dollars,  there  is  no  induce- 
ment to  export  them,  and  the  law  was  no  longer  subserving  any  useful 
purpose. 

2:5181—04 15 


222  REPORTS    OF    THE    CIVIL    (U)VERNMENT 

The  fact  was  stated  in  the  former  report  that  the  local  banks  refused 
to  receive  deposits  in  money  of  the  United  States  and  required  all  such 
money  to  be  exchanged  into  local  currency  before  being  deposited, 
commission  being  charged  for  exchange.  Hence  depositors  were  not 
able  to  withdraw  their  money  in  United  States  currency,  but  only  in 
local  currency,  and  if  they  wished  United  States  money  to  use  were 
obliged  again  to  repurchase  it  from  the  banks,  paying  a  commission  for 
the  exchange.  This  method  of  business  was  regarded  as  a  discrimina- 
tion against  money  of  the  United  States,  and  accordingly,  on  the  28th 
da}"  of  November,  1900,  act  No.  53  was  passed,  requiring  banks  of 
deposit  in  the  islands  to  accept  deposits  both  in  the  money  of  the 
United  States  and  in  Mexican  or  local  currency,  and  to  repay  such 
deposits  by  checks  or  otherwise  in  the  kind  of  money  in  which  they 
were  made,  but  guarding  the  banks  against  being  required  to  accept 
small  and  unprotitable  deposits  in  any  currenc3^  This  act,  although 
unsatisfactory  to  the  banks  and  by  them  called  to  the  attention  of  the 
War  Department,  was  approved  by  the  War  Department  as  a  useful 
regulation  of  banking  institutions,  and  has  furnished  great  relief  to  all 
business  men  in  the  islands.  Nor  is  it  any  hardship  upon  the  banks. 
It  simply  deprives  them  of  a  kind  of  profit  which  it  was  unjust  for 
them  to  reap,  in  view  of  the  fact  that  they  were  gaining  it  b}^  a  dis- 
crimination against  the  money  of  the  sovereign  power  in  the  islands. 

The  effect  of  the  military  order  referred  to  in  the  former  report, 
authorizing  the  exchange  of  2  pesos  of  local  currency  for  $1  of  money 
of  the  United  States,  coupled  with  the  legislation  referred  to,  to  secure 
equal  facilities  for  the  deposit  and  pa^aiient  of  both  currencies  in  the 
local  banks,  and  the  payment  of  sums  due  from  the  insular  govern- 
ment to  employees  and  others  mainly  in  money  of  the  United  States, 
has  been  to  secure  an  entirely  stable  currenc}^  throughout  the  islands 
since  the  11th  day  of  August,  1900,  down  to  the  date  of  this  report, 
and  it  is  considered  that  the  securing  of  this  result  has  been  of  very 
great  advantage  to  all  the  people  of  the  islands.  At  the  present  time 
the  value  of  Mexican  dollars  as  compared  with  gold  is  such  that  a  dol- 
lar of  money  of  the  United  States  is  worth  something  more  than  2 
pesos  of  local  currency;  but  it  has  been  considered  of  such  importance 
to  maintain  a  uniform  ratio  between  the  two  temporarily,  until  Con- 
gress shall  act  upon  the  currency  question,  that  the  civil  governor  has 
fixed  by  proclamation  the  ratio  of  2  to  1  between  the  two  curren- 
cies for  the  ensuing  quarter,  commencing  the  1st  day  of  October,  1901. 
The  effect  of  this  order  will  probably  be  that  importers  and  others 
having  taxes  to  pay  to  the  government  will  meet  those  payments  almost 
wholly  in  local  currency,  and  thereby  the  insular  government  will 
sustain  a  certain  loss;  that  is,  it  will  receive  less  intrinsic  value  than  it 
would  if  the  payments  were  all  required  to  be  made  in  gold,  or  if  the 
ratio  of  $2.02  or  $2.0'!,  insular  curreuc}^,  to  $1,  money  of  the  United 


0¥    THE    PHILIPPINE    ISLANDS,    1900-1903.  223 

States,  had  been  fixed.  But  it  is  the  opinion  of  the  commission  that 
the  maintenance  of  a  stable,  uniform  ratio  for  a  few  months  longer 
will  be  of  valvio  to  the  business  interests  more  than  sufficient  to  com- 
pensate for  the  loss. 

If  the  scheme  of  recoinage  hereinafter  recommended  shall  be 
adopted,  the  Mexican  dollars  in  the  treasur}'  will  be  available  for 
recoinage,  and  a  largo  seigniorage  will  accrue  as  profit  to  the  treasury 
fi-om  the  transaction,  the  Mexican  dollars  being  available  for  that  pur- 
pose. There  has  been  considerable  complaint  that  the  United  States 
paper  currency  in  circulation  in  the  islands  was  soiled  and  torn,  and 
it  was  an  embarrassment  to  collecting  officers  to  receive  the  currency 
and  then  to  be  unable  to  dispose  of  it  in  settlement  of  their  balances 
with  the  insular  treasur3^  To  remed}^  this  difficult}^  and  to  keep  the 
currency  fresh  and  clean,  and  thus  render  it  more  wholesome  and 
likewise  more  satisfactory  to  the  people  of  the  islands,  act  No.  149 
was  passed  on  June  22,  1901,  providing  that  it  should  be  the  duty  of 
the  insular  treasurer  to  hold  mutilated  or  worn-out  notes  that  came 
into  his  possession  and  forward  them  to  the  United  States  Treasury 
for  redemption  in  new  notes  fit  for  use,  and  the  treasurer  and  other 
officials  receiving  mone}'  were  authorized  to  receive  v/orn-out  or  muti- 
lated notes  in  payment  of  the  public  dues  and  to  receive  credit  for  the 
same  with  the  insular  treasurer,  who  should  forward  them  for  renewal, 
as  above  stated. 

PROPOSED   NEW   COINAGE. 

Upon  the  general  subject  of  currency  for  the  islands  the  commis- 
sion, after  substantiall}^  one  year's  further  consideration  and  .study  of 
the  situation,  and  conferences  with  business  men,  renews  the  recom- 
mendation made  in  its  former  report  for  the  coinage  of  a  United 
States-Filipino  peso  of  the  value  of  a  half  dollar,  mone}^  of  the  United 
States,  containing  a  small  percentage  less  silver  than  the  Mexican  dol- 
lar, the  percentage  being  such  that  its  intrinsic  value  would  not  at 
any  time  warrant  its  export  from  the  island  for  bullion,  with  a  pro- 
vision for  its  convertibilit}^  into  money  of  the  United  States-Filipino 
pesos  for  $1  in  money  of  the  United  States,  together  with  convenient 
subsidiary  coins.  In  consideration  of  the  details  of  such  a  coinage 
system,  the  commission  has  had  the  benefit  of  the  advice  and  assistance 
of  Mr.  Charles  A.  Conant,  an  expert  upon  the  subject  of  banking  and 
finance,  who  came  to  the  islands,  under  your  direction,  for  the  purpose 
of  aiding  the  commission  in  fonnulating  a  plan  for  providing  a  stable 
and  uniform  currency  for  the  islands.  Mr.  Conant's  assistance  has 
been  of  great  value  upon  both  subjects,  banking  and  currenc3^ 

In  renewing  the  reconmiendations  made  upon  this  subject,  we  call 
attention  to  the  facts  that  a  stable  monetary  standard  and  suflicient 
supply  of  sound  currency  arc  among  the  essential  reciuircments  for 


224  REPORTS    OB^    THE    CIVIL    GOVERNMENT 

the  devclopuient  of  an}'  coniiuercial  country;  that  the  progress  made 
in  the  restoration  of  peace  and  order,  and  the  impending  development 
of  business  in  all  directions,  make  the  creation  of  such  a  currency  an 
ijnmcdiate  and  pressing  necessity  which  should  appeal  strongly  to 
Congress  for  its  early  action;  that  outside  capital  iiows  freely  to  a 
country  where  the  standard  is  fixed  and  certain,  but  comes  only  grad- 
ually to  one  where  it  is  doubtfid  in  what  form  of  money,  transactions 
may  be  carried  on  and  debts  discharged;  that  the  existing  currency 
mainly  depends  upon  the  coinage  of  a  different  and  distant  country; 
that  the  principal  coins  in  use,  Mexican  silver  dollars,  are  made  from 
a  metal  which  is  fluctuating  in  value  in  relation  to  gold,  and  that  this 
creates  serious  difficult}^,  and  that  the  Mexican  dollar  fluctuates  not 
onh'  with  the  value  of  silver  bullion,  but  with  the  difiiculty  of  obtain- 
ing the  dollar,  depending  in  part  upon  the  special  demand  for  it  in 
China  and  other  countries,  so  that  its  value  in  commercial  transactions 
is  determined  neither  by  the  price  of  silver  bullion,  nor  by  the  value 
of  a  dollar  in  Mexico,  nor  its  value  in  gold,  nor  its  value  in  China,  but 
by  a  combination  of  these  influences,  over  which  neither  the  Govern- 
ment of  the  Philippine  Islands  nor  the  business  men  in  the  islands  can 
exercise  a  calculable  and  permanent  control. 

It  is  not  desirable  in  our  opinion  to  attempt  to  introduce  American 
gold  currency  at  the  present  time  as  the  exclusive  money  of  the  Philip- 
pines. Such  a  course  would  produce  serious  disturbances  in  prices 
and  wages.  Substantially  all  the  benefits  anticipated  from  the  intro- 
duction of  American  gold  money  can  be  obtained  for  the  commerce 
of  the  United  States  and  that  of  other  gold-standard  countries  by 
establishing  a  definite  relationship  between  the  proposed  silver  coin 
and  the  American  gold  dollar.  The  benefits  of  definite  relationship 
between  two  of  the  standard  silver  coins  of  the  countr}^  and  $1  in 
gold  would  be  especially  felt  by  American  importers  because  of  the 
simplicit}^  of  the  relation;  but  in  all  other  gold-standard  countries 
the  value  of  the  Filipino  coins  would  be  definitely  fixed  in  relation  to 
their  standard.  In  order  to  give  fixit}^  to  the  gold  value  of  silver  coins 
it  is  necessarj'^  to  limit  the  quantity  and  to  provide  for  their  conversion 
into  gold.  Limitation  of  the  quantity  operates  in  regard  to  coins  as 
in  regard  to  commodities;  the  value  is  raised  by  scarcity.  Upon  this 
method  of  giving  value  to  silver  reliance  is  chiefly  placed  in  the  countries 
of  the  Latin  Union,  in  Holland,  and  in  the  United  States.  The  limita- 
tion of  the  coinage  of  silver  to  the  amounts  previously  existing  and  to 
the  amounts  fixed  by  the  government  has  given  an  artificial  value  to 
silver  coins  of  all  these  countries,  keeping  them  at  par  with  gold. 

It  is  therefore  recommended  that  the  government  of  the  Philippine 
Islands  be  authorized  by  Congress  to  purchase  silver  bullion  and  coin 
it  into  pieces  having  an  exchange  value  in  the  Philippines  of  50  cents 
gold.     These  coins,  with  their  corresponding  subdivisions,  will  replace 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  225 

in  popular  use  the  Mexican  silver  dollar,  as  well  as  the  Spanish  peso, 
without  any  sudden  shock  to  values  or  to  the  denominations  of  cur- 
rency to  which  the  people  have  been  long  accustomed.  It  is  proposed 
that  only  such  amounts  shall  be  coined  as  would  meet  the  needs  of 
trade  in  the  islands  at  the  parity  fixed  by  law. 

It  is  recommended  that  further  measures  be  taken  similar  to  those 
adopted  in  the  United  States  for  securing  the  parity  of  gold  and  silver. 
The  most  obvious  of  these  measures  is  the  creation  of  a  gold  reserve 
from  which  gold  could  be  paid  for  silver,  if  necessary  to  maintain 
confidence.  There  is  some  disposition  among  the  Filipinos  and  Chi- 
nese in  the  Philippines  Islands  to  hoard  and  bury  gold  coin,  but  this  is 
likewise  true  to  an  extent  as  to  silver  coin.  For  this  reason  we 
recommend  that  authority  be  given  the  Philippine  treasury  to  exercise 
discretion  in  paying  gold  for  silver,  in  order  that  it  may  pay  gold 
only  when  necessary,  in  its  opinion,  to  maintain  the  parity  of  silver 
coin.  This  will  permit  the  treasury  to  provide  gold  for  export  and 
to  meet  other  legitimate  demands  from  the  commercial  community, 
but  to  refuse  it  when  asked  for  the  mere  purpose  of  hoarding. 

The  creation  of  such  a  gold  reserve  would  involve  no  cost  to  the 
government  of  these  islands  if  a  coin  is  adopted  somewhat  below  its 
face  value  in  silver.  The  margm  between  the  value  of  50  cents  and 
the  bullion  value  of  silver  will  represent  a  profit  or  seigniorage  to  the 
treasury,  which,  in  our  opinion,  should  be  set  aside  as  a  gold  reserve. 
This  course  would  assure  the  public  that,  while  the  actual  circulation 
consisted  of  token  coin,  the  gold  necessary  to  cover  the  difi'erence 
between  the  bullion  of  these  coins  and  their  par  value  would  be  kept 
as  a  sacred  fund  for  their  protection,  and  that  it  was  no  part  of  the 
plan  of  the  government  of  the  Philippine  Islands  to  debase  the  coinage 
and  appropriate  the  fictitious  profits  to  its  own  use. 

We  think  it  is  desirable,  if  a  gold  standard  is  thus  established,  that 
some  additional  power  should  be  given  to  the  government  of  the  Phil- 
ippine Islands  to  maintain  the  parity  between  gold  and  silver  in  case  it 
should  be  threatened.  The  power  to  sell  drafts  for  gold  at  par  on 
deposits  of  the  Philippine  treasury'  in  the  United  States  and  the  power 
to  issue  temporarj'  certificates  of  indebtedness  similar  to  those  author- 
ized in  the  United  States  by  the  act  of  June  14,  1898,  are  among  the 
methods  by  which  strength  might  be  given  to  the  currency  system  and 
confidence  be  maintained  in  the  commercial  communit}'.  It  is  to  be 
said  in  favor  of  such  powers  that  the  mere  authority  to  exercise  them 
would  greatly  diminish  the  necessity  that  they  should  be  exercised. 
The  fear  that  the  government  might  permit  the  two  metals  used  as 
mone}'  to  depart  from  their  legal  ratio  and  the  absence  of  power  to 
take  steyjs  to  maintain  this  ratio  would  invite  danger  which  would 
rarely  or  never  arise  if  it  were  known  that  the  government  was  clothed 
with  every  necessary  power  to  maintain  the  monetary  standard 
unimpaired. 


22(>  KKPOUT!:^    OK    THE    OrVIL    OOVEKNMENT 

It  seems  to  be  desirable,  as  a  triliute  to  Philippine  local  feeling,  that 
the  mint  at  Manila  should  be  used  as  far  as  possible  for  the  execution 
of  the  new  coinage.  Attached  to  our  former  report  was  an  exhibit, 
stating-  in  detail  the  size,  facilities,  capacity^  and  condition  of  the  local 
mint  and  all  the  machiner}"  therein.  We  would  therefore  recommend 
that  proper  experts  be  sent  here  at  an  early  date  and  that  adequate 
machinery  be  set  up  in  the  local  mint,  so  far  as  its  capacit}^  will  war- 
rant. We  think  it  would  be  wise  to  provide,  however,  if  sufficient 
coinage  can  not  be  executed  at  the  mint  at  Manila  to  meet  the  require- 
ments of  the  new  currency,  that  the  mints  of  the  United  States  be 
authorized  to  aid  in  the  work,  with  proper  compensation  from  the 
government  of  the  Philippine  Islands,  as  in  the  case  of  coinage  for 
foreign  governments. 

It  is  the  purpose  and  expectation  of  the  commission,  in  case  a  dis- 
tinctive coin  is  adopted  for  the  Philippines,  to  introduce  that  coin  as 
rapidly  and  completely  as  possible  into  the  currency  system  of  the 
islands.  It  is  believed  that  the  Mexican  dollars  will  rapidly  disappear 
if  thej^  cease  to  be  a  legal  tender  for  debts  after  a  prescribed  date. 
They  contain  more  silver  than  the  proposed  Filipino  dollar  if  the  plan 
of  the  commission  is  adopted.  This  will  tend  to  expel  the  Mexican 
dollar  and  keep  the  new  Filipino  dollar  at  home  for  the  use  of  the 
commerce  of  the  islands. 

The  new  coinage  S3^stem  should  provide  for  subsidiary  coins,  one- 
half  peso;  1  peseta,  or  twenty  centavos,  which  is  one-fifth  of  a  peso;  a 
media  peseta,  or  10-centavo  piece;  and  coins  of  other  metals  should  be 
provided,  so  as  to  furnish  5-centavo  and  1-centavo  coins,  the  latter 
being  of  the  value  of  one-half  cent  United  States  money.  An 
adequate  supply  of  these  small  coins  is  indispensable  for  the  transac- 
tion of  ordinary  business  among  the  poorer  people  of  the  islands,  who 
make  their  purchases  in  veiy  small  amounts  and  need  small  coins  for 
that  purpose.  All  questions  of  exchange  between  the  islands  and  the 
United  States,  which  have  caused  much  annoyance  to  the  disbursing 
officers  of  the  Army  and  Navy,  will  come  to  an  end  under  such  a  sys- 
tem, except  so  far  as  they  concern  the  legitimate  cost  of  transporting 
the  money.  It  is  hoped  that  Congress  will  see  fit,  if  this  recommenda- 
tion has  your  approval,  to  fix  a  short  period  within  which  all  prepara- 
tions shall  be  made  for  the  adoption  of  a  new  and  distinctive  coinage, 
in  order  that  proclamation  may  thus  be  made  that  the  currency  of  the 
Philippine  Islands  is  fixed  beyond  question  upon  the  standard  of  other 
commercial  nations,  and  that  capital  may  safely  come  here  for  the 
purposes  of  trade  and  permanent  investment. 

BANKS   AND   BANKING. 

On  the  23d  day  of  November,  1900,  act  No.  53  was  passed,  providing 
for  the  examination  of  banking  institutions  in  the  Philippine  Islands 
by  the  insular  treasurer,  or  authorized  deputy  by  him  appointed,  at 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  227 

least  once  in  every  six  months,  and  at  such  other  times  as  he  might 
deem  expedient;  and  for  a  report  of  such  an  examination  by  him  to 
the  chief  executive,  to  the  commission,  and  to  the  Comptroller  of  the 
Currency  of  the  United  States,  and  for  reports  by  all  banking-  institu- 
tions, whether  doing-  business  as  branches  of  a  principal  bank  in  another 
countr}'  or  not,  on  or  before  the  15th  day  of  January,  April,  eTuly,  and 
October  in  each  year,  to  the  treasurer  of  the  islands,  which  reports 
should  conform  as  nearly  as  might  be  to  those  made  by  national  banks 
in  the  United  States  under  the  laws  of  the  United  States  and  regula- 
tions of  the  Comptroller  of  the  Currency,  which  reports  should 
specifically  state  all  the  details  of  the  business  conducted  during  the 
preceding  quarter  in  the  Philippine  branch  of  foreign  corporations 
conducting  a  banking  lousiness  here  and  the  financial  condition  of  its 
principal  bank  at  the  latest  practicable  period  prior  to  the  date  of  such 
reports,  and  that  such  reports  should  also  contain  such  further  and 
other  data  as  might  be  called  for  bj"  the  insular  treasurer.  Examina- 
tions and  reports  have  been  made  in  accordance  with  the  law  at  the 
periods  required. 

Copies  of  the  most  recent  reports  of  all  the  banks  doing  business  in 
the  islands,  the  Hongkong  and  Shanghai  Banking  Corporation,  Char- 
tered Bank  of  India,  Australia  and  China,  El  Banco  Espanol-Filipino, 
and  the  Monte  de  Piedad  are  hereto  annexed  and  marked  Appendices 
R,  S,  and  T.  Deposits  of  insular  funds  have  been  made  in  the  two  insti- 
tutions first  named.  The  only  security  for  the  deposits,  aside  from 
the  general  assets  of  the  banks,  consists  of  11,000,000  deposited  by 
each  of  the  two  banks  in  United  States  Government  bonds,  in  accord- 
ance with  your  orders  issued  before  the  commission  came  into  these 
islands.  Both  those  banks  are,  as  stated  in  the  former  report,  branches 
of  great  English  corporations  of  many  years'  standing.  The  parent 
institutions  are  liable  for  every  dollar  of  the  Government  deposits  in 
the  Manila  branches.  While  there  never  was  any  doubt  upon  this 
proposition,  yet  in  response  to  cable  suggestions  from  the  chief  of  the 
bureau  of  insular  affairs,  concurred  in  by  the  Comptroller  of  the 
Currency,  we  communicated  with  the  parent  institutions  and  received 
assurances  directly  that  they  were  responsible  for  ever}^  dollar  of 
insular  deposits  in  the  Manila  branches.  There  is  no  reason  now  for 
doubting  the  entire  safety  of  the  insular  deposits  in  those  banks;  but 
in  response  to  the  cablegram  referred  to  we  have  called  the  attention 
of  the  local  managers  of  those  banks  to  the  desirability  of  further 
security  being  given  for  the  insular  deposits.  The  manager  of  the 
Chartered  Bank  of  India,  Australia  and  China  assured  us  that  he  would 
immediately  comnumicate  with  their  home  office  in  London  and  request 
that  ofticc  to  open  negotiations  upon  the  subject  directly  with  the 
Secretary  of  War  at  Washington.  The  local  manager  of  the  Hong- 
kong and  Shanghai  Bank  agreed  that  he  would  immediately  conuuuni- 


228  REPOUTS    OK    'I'lTK    OrVIL    OOVERNMKNT 

cjito  Avith  the  home  oHico  of  his  institution  and  inform  us  at  an  early 
date  as  to  what  it  Avould  be  willin<>- 1()  do  in  the  direction  named. 

It  was  suggested  by  both  the  local  managers  that  if  further  security 
were  to  be  given,  arrangements  might  be  made  for  the  deposit  of 
high-grade  bonds  othei'  than  bonds  of  the  United  States  Government, 
wherel)v  the  loss  of  interest  could  be  made  less.  The  conmiission  sees 
no  reason  why  this  suggestion  might  not  be  complied  with,  due  care 
being  taken  as  to  the  character  of  the  bonds  received  as  security.  It 
would  be  entirely  impracticable,  if  the  banks  should  decline  to  give 
further  security,  immediately  to  remove  the  deposits  from  their  cus- 
tody. The  Hongkong  and  Shanghai  Bank,  on  the  2d  day  of  Octo- 
ber, 1901,  has  of  insular  funds  $4,60-1,677.76  (pesos)  on  deposit,  and 
$1,120,865.67  United  States  money;  and  the  Chartered  Bank  of  India, 
Australia  and  China  has  $4,677,1:09.43  (pesos),  and  $1,32.5,366.22 
money  of  the  United  States.  The  insular  treasurer  has  no  place  ade- 
quate for  keeping  this  large  amount  of  bulky  Mexican  or  local  cur- 
rency. The  insular  treasury  has,  however,  a  new  vault  capal)le  of 
storing  several  million  dollars  of  currency  of  various  kinds  belonging 
to  the  Government;  and  it  is  proposed,  as  soon  as  the  necessary  facili- 
ties are  completed,  to  transfer  a  considerable  portion  of  the  funds  now 
on  deposit  in  the  banks  to  the  insular  treasury  vaults  and  to  make 
payment  for  insular  disbursements  directly  from  the  treasury  on 
proper  warrants  and  checks  instead  of  through  the  banks.  It  is  con- 
sidered that  there  will  be  an  advantage  in  this  course  of  business  from 
the  fact  that  the  insular  treasurer  will  at  all  times,  without  waiting  for 
reports  from  the  banks,  know  the  exact  amount  of  available  cash  and 
the  precise  condition  of  the  treasury.  In  that  event  it  is  suggested 
that  the  deposits  in  the  banks  might  be  reduced  to  a  specified  amount, 
which  should  be  allowed  to  remain  in  them  for  a  short  stated  period, 
so  that  the  banks  could  afford  to  pay  a  moderate  rate  of  interest  upon 
them  as  substantially  fixed  deposits.  No  determination  has  as  yet 
been  arrived  at  upon  the  matters  here  suggested. 

The  two  English  banks  above  referred  to  are  doing  business  in  these 
islands  under  the  general  law  enacted  by  the  Spanish  authority,  author- 
izing the  formation  of  general  partnerships,  limited  partnerships,  com- 
mercial associations,  and  banking  and  business  corporations  by  volun- 
tary associations  on  compliance  with  the  requirements  of  law.  The 
existing  Spanish  law  upon  that  subject  is  fully  and  carefully  stated  in 
a  communication  bearing  date  September  24,  1901,  to  the  commission 
from  Hon.  Gregorio  Araneta,  solicitor-general  of  the  islands,  which  is 
hereto  annexed  and  marked  Appendix  U.  It  will  be  seen  from  that 
exhibit  that  voluntary  associations  for  the  conduct  of  nearly  every 
kind  of  commercial  business,  including  banking,  except  the  right  of 
issuing  bank  notes,  may  be  formed  by  any  persons,  native  or  foreign. 
Upon  the  theory  that  the  letter  of  that  law  is  still  in  force,  there  is 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  229 

nothing  to  prevent  Americans  or  foreigners  from  forming  banking 
associations  and  entering  into  a  general  banking  business  here,  unless 
it  should  be  held  that  the  formation  of  such  a  corporation  and  its 
engaging  in  business  under  such  general  laws  constitute  such  granting 
of  a  franchise  as  is  forbidden  by  the  terms  of  the  amendment  to  the 
army  appropriation  bill  passed  by  the  last  Congress.  The  commis- 
sion has  as  yet  had  no  occasion  to  pass  upon  that  question.  Corpora- 
tions have  been  formed  under  those  Spanish  laws,  since  American 
occupanc3%  for  the  manufacture  or  sale  of  tobacco  and  cigars  and  for 
other  commercial  purposes  and  are  now  conducting  their  business 
under  those  laws.  It  is  the  decided  opinion  of  the  commission  that 
Congressional  action  should  be  taken  with  reference  to  a  banking 
system  that  shall  prevail  in  the  Philippine  Islands,  and  recommenda- 
tions will  be  made  later  under  the  present  heading  upon  that  subject. 

The  existing  law  relating  to  the  Spanish-Filipino  Bank  has  hereto- 
fore been  transmitted  to  you,  so  that  it  is  unnecessary  to  make  further 
statement  upon  that  subject  here.  The  amount  of  bank  notes  issued 
by  the  Spanish-Filipino  Bank  under  its  charter  and  outstanding  on 
August  31,  1900,  was  $2,700,750  Mexican.  At  this  date  that  amount 
has  been  reduced  to  substantially  $2,100,000  and  is  constant!}'  being 
reduced;  but  about  $192,000  of  these  notes  were  issued  prior  to  1884, 
many  of  which  have  undoubtedly  been  lost  or  destroyed.  But  the 
demand  for  bank  notes  for  ordinary  usages  is  large,  and  it  is  difficult 
for  the  managers  to  make  a  rapid  reduction  of  the  amount  of  such 
paper.  It  is  undesirable  to  contract  the  convenient  and  well-known 
local  paper  currency  too  rapidly.  We  have  indicated  to  the  managers 
of  the  bank  that  it  was  desired  that  the  amount  of  its  circulating  notes 
shoukl  not  exceed  the  amount  of  its  paid-up  capital,  $1,500,000,  and 
that  their  charter,  which  authorizes  the  issue  of  notes  up  to  three 
times  the  paid-up  capital,  should  be  amended  accordingly,  and  that 
provision  should  be  made  also  by  law  that  the  obligation  created  by 
outstanding  notes  or  bills  should  form  a  first  charge  upon  the  assets 
of  the  })ank  in  case  of  failure,  and  that  the  exclusive  right  given  to  it 
to  issue  paper  currency  in  the  islands  down  to  the  year  1921  was  one 
so  nearl}^  touching  the  sovereignt}^  of  the  country,  its  powers  of  gov- 
ernment, and  control  of  its  own  currency  that  that  exclusive  right 
could  not  be  recognized.  A  meeting  of  the  stockholders  of  that  bank- 
has  been  called  to  consider  the  suggestions  a])ove  referred  to,  but  no 
action  has  as  yet  been  taken,  so  far  as  the  commission  is  informed. 

The  problem  of  encouraging  American  trade  by  means  of  proper 
banking  facilities  in  the  Philippine  Islands  has  repeatedly  been  dis- 
cussed in  reports  made  by  civil  and  militar}''  officers  to  the  War  Depart- 
ment, but  the  commission  has  taken  no  legislative  action  looking  to 
the  establishment  of  a  permanent  system,  ])ecause  it  was  considered 
"ndispensable  that  Congressional  action  should  be  taken,  and  that  the 


2oO  REPORTS    OK    TIIK    CIVIL    GOVERNMENT 

local  system  lun-o  established  should  ho  in  hfivmony — so  far  as  differ- 
ent conditions  would  permit — with  that  which  prevails  in  the  United 
States.  It  has  seemed  to  them  that  such  a  modilicalion  of  the  Ameri- 
can law  would  be  essential  to  puttin*;-  an  American  hank  upon  a  proper 
footinii',  and  that  this  subject,  like  that  of  coinage,  should  be  dealt 
with  l)y  Congress,  It  is  also  important  that  capitalists  should  be 
given  notice  b}^  law  under  just  what  conditions  banks  may  be  estab- 
lished and  conducted  in  these  islands.  The  local  l)anks  have  already 
been  referred  to,  and  there  are  various  private  individuals  loaning 
mone}'  here;  l)ut  none  of  the  local  institutions  or  individuals  fully 
meet  the  needs  of  the  American  trade,  either  as  it  exists  to-day  or  as 
it  is  likel}'  to  develop. 

It  seems  desirable  that  legislation  should  be  passed  by  Congress  dis- 
tincth^  authorizing  American  banks  to  enter  upon  business  in  the 
Philippine  Islands,  under  guarantees  which  will  promote  their  suc- 
cessful and  continuous  operation.  The  extension  of  the  national-bank 
law  of  the  United  States  to  the  Philippine  Islands,  without  change, 
would  not  entirely  meet  the  needs  of  the  situation,  because  it  would 
permit  only  local  banks.  Such  banks  could  not  establish  branches, 
and  w^ould  not  be  likely  to  issue  circulating  notes  under  the  require- 
ment of  the  existing  law  of  the  United  States.  It  seems  to  the  com- 
mission to  be  desirable  that  opportunity  should  be  given  for  the 
creation  of  strong  banks  with  branches,  or  for  the  entrance  into  the 
Philippine  Islands  of  branches  of  strong  banks  in  the  United  States. 

The  commission  exercises  full  control  over  existing  banks  by  virtue 
of  the  general  powers  vested  in  it  by  the  President  and  your  orders; 
but  with  the  full  establishment  of  civil  government,  it  seems  desirable 
that  this  power  should  be  defined  by  act  of  Congress  in  order  that 
capitalists  throughout, the  world  desiring  to  invest  in  the  Philippines 
may  know  under  what  conditions  such  investments  may  be  made. 
We  therefore  recommend  that  general  powers  be  conferred  by  act 
of  Congress  upon  the  commission  to  regulate  banking,  to  grant 
licenses  to  such  banks  as  shall  be  authorized  to  conduct  a  banking 
business  here,  to  appoint  bank  examiners,  and  to  wind  up  the  busi- 
ness of  banks  wdiich  may  become  insolvent.  These  powers  would 
apply  equally  to  banks  established  or  having  branches  here,  and  would 
appl}^  to  national  banks  established  in  the  Philippines,  except  so  far 
as  the}^  may  be  regulated  by  the  Comptroller  of  the  Currency  through 
the  national-bank  act. 

"We  would  suggest  that  the  national-bank  act  be  extended  to  the 
Philippines,  but  that  certain  important  moditications  be  made  in  its 
operation  adapted  to  the  special  conditions  existing  in  the  islands. 
The  first  of  these  w^ill  be  the  power  to  establish  branches.  This  power 
might  be  conferred  both  upon  national  banks  having  their  head  offices 
in  the  United  States  and  upon  national  banks  having  their  head  offices 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  231 

in  these  islands  and  branches  in  the  United  States.  It  is  suggested 
that  the  proposition  to  allow  branch  banking  might  affect  seriously 
the  operation  of  the  banking  system  at  home,  unless  the  proposed 
extension  were  limited  in  such  a  way  as  to  apply  only  to  banks 
engaged  in  business  outside  the  United  States  and  to  the  sort  of  busi- 
ness within  the  United  States  which  is  carried  on  between  the  United 
States  and  other  countries.  Without  expressing  any  opinion,  there- 
fore, as  to  the  wisdom  of  branch  banking  in  general,  we  suggest  that 
it  be  authorized  in  respect  to  these  islands,  and  that  if  Congress  be 
opposed  to  its  further  extension,  branches  of  national  banks  within 
the  United  States  and  of  national  banks  organized  here  shall  not  be 
allowed  to  conduct  the  domestic  classes  of  business  chiefly  represented 
by  domestic  bills  of  exchange  and  by  advances  upon  securities.  This 
limitation  ought  to  be  sufficient  to  prevent  the  fear  on  the  part  of 
any  bank  of  the  United  States  that  its  local  business  would  be  impaired 
or  obstructed  by  branches  of  American  banks  doing  business  chiefly 
outside  the  United  States  or  doing  foreign  exchange  business  within 
the  United  States. 

If  the  Spanish-Filipino  Bank  should  be  restricted  in  its  issue  of 
paper  currency,  as  we  think  it  ought  to  be,  to  $1,500,000,  the  amount 
of  its  capital,  that  sum  will  represent  the  only  issue  of  paper  money  in 
the  islands;  and  that  sum,  together  with  such  paper  currency  of  the 
United  States  as  remains  here,  is  insufficient  to  meet  the  present  needs 
of  the  country.  It  is  obvious,  from  the  difficulty  encountered  by  the 
Spanish  bank  in  withdrawing  its  notes  and  from  other  facts  that  this 
limit  of  paper  credit  must  prove  inadequate  to  the  business  needs  of 
the  islands.  It  appears  also  from  the  high  rate  earned  b}^  mone}^  when 
loaned  at  interest,  and  from  the  declarations  of  leading  bankers,  that 
circulating  notes  are  not  likely  to  be  issued,  even  if  authorized  to  be 
issued,  by  national  banks  of  the  United  States,  when  such  banks  are 
required  to  invest  their  capital  in  United  States  bonds  as  a  prerequisite 
to  the  privilege  of  issuing.  Some  of  the  disbursing  officers  of  the 
United  States  Army  here  have  encountered  difficulty  in  keeping  their 
deposits  in  the  English  banks,  because  those  banks  have  been  unwilling 
to  invest  in  the  necessary  bonds  required  as  security  for  such  deposits 
in  view  of  the  small  returns  upon  the  bonds  and  the  high  rates  for 
money  when  loaned  or  invested  in  other  ways. 

We  therefore  rcconnnend  that,  if  national  l)anks  are  permitted  to 
enter  the  Philippine  Islands  and  to  establish  branches  here,  they  be 
given  a  rcasona))ly  elastic  power  of  note  issue  which  will  meet  the 
needs  of  an  undeveloped  country  and  a  growing  demand  for  currency. 
It  is  not  proposed  by  the  government  of  the  Philippine  Islands  to  issue 
paper  of  its  own  or  to  ask  for  authority  for  so  doing,  except  certifi- 
cates for  coin.  Wc  believe  that  the  volume  of  paper  currency  can 
best  be  regulated  by  the  needs  of  trade  through  banks  of  issue.     It  is 


282  RKPOUT^?    OF    THE    OIVIL    GOVERNMENT 

not  iiecossurv  to  abolish  all  .saf(\yuards  for  the  .socurity  of  hank  notes, 
if  tho  requironiont  is  nioditiod  that  bonds  bo  deposited  in  full  for  the 
amount  of  notes  thus  issued.  Reasonable  safeguards  would  appar- 
ently be  thrown  around  such  notes  by  making  them  a  first  lien  upon 
the  assets  of  the  issuing-  l)ank,  except  a  lien  in  favoi"  of  the  United 
States  and  the  Phili])pine  government  for  their  monc}^  in  the  custody 
of  the  bank.  ]t  may  be  desirable  also  to  continue  the  requirement 
that  national  banks  shall  deposit  in  the  Federal  Treasury  a  certain  min- 
imuni  amount  of  United  States  bonds  and  that  these  bonds  may  be 
counted  as  a  part  of  the  security  for  circulation.  A  small  tax  upon 
circulation,  which  should  be  applied  to  a  safety  fund  for  the  protection 
of  notes  of  failed  banks,  would  add  an  additional  bulwark  to  a  limited 
issue  of  notes  upon  the  credit  of  the  issuing  bank. 

More  important  in  some  respects  than  these  positive  safeguards 
would  be  the  restriction  of  the  power  to  issue  notes  to  banks  of  large 
capital.  Large  banks  would  be  much  more  potent  than  small  ones  in 
dealing  successfully  with  the  conditions  in  these  islands.  Transactions 
in  merchandise  from  the  United  States,  in  the  encouragement  of  new 
enterprises,  and  in  the  shipment  of  native  products  are  likely  to  be 
upon  a  large  scale  and  to  solicit  the  aid  of  capital  in  large  amount.  A 
large  bank  has  advantages  in  the  character  of  its  management,  the 
greater  experience  of  its  officers,  and  in  the  power  to  command  aid 
from  the  other  great  banking  institutions  of  the  world  over  local  banks 
without  such  connections  and  risking  their  entire  credit  upon  loans  in 
a  single  community.  It  therefore  seems  undesirable  that  any  bank 
with  a  capital  of  less  than  $500,000  in  gold  should  be  permitted  to 
issue  circulating  notes  or  to  establish  branches  in  these  islands. 

If  a  system  of  branch  banks  is  authorized  with  the  power  to  issue 
circulating  notes,  it  is  recommended  that  the  Spanish-Filipino  Bank 
should  be  brought  under  similar  regulations.  This  might  be  done  by 
a  grant  by  Congress  of  general  and  unrestricted  authority  to  the 
government  of  the  Philippine  Islands  to  regulate  banking.  It  is 
probably  desirable,  however,  in  view  of  the  claims  of  the  Spanish 
bank,  under  its  existing  charter,  and  the  possibilit}^  that  such  claim 
might  become  the  basis  of  legal  controversy,  that  special  provision 
should  be  made  by  act  of  Congress  applying  directly  tc  this  bank  most 
of  the  regulations  regarding  the  issue  of  notes  which  ma}^  be  made  to 
apph"  to  the  issue  of  national  banks.  Most  of  the  regulations  could 
be  adopted  by  the  Spanish-Filipino  Bank  without  difficulty,  except 
that  it  would  probablj^  be  desirable  to  authoi'ize  the  note  issue  to 
remain  to  the  full  amount  of  its  paid-up  capital,  even  if  American 
banks  are  limited  to  a  smaller  percentage.  The  Spanish-Filipino  Bank 
is  a  local  institution,  long  established,  and  is  entitled  to  be  treated  with 
the  same  consideration  that  applies  to  all  other  enterprises  of  impor- 
tance that  have  long  been  established  here. 

The  difficulties  which  have  been  experienced  both  by  disbursing 


OE^    THE    PHILIPPINE    ISLANDS,    1900-1903.  233 

officers  of  the  Arm}^  and  Navy  and  by  the  Philippine  treasury  in  deal- 
ing with  exchange  and  handling  funds  of  officers,  soldiers,  and  civil 
employees  suggests  that  the  insular  treasury  be  placed  upon  a  perma- 
nent footing.  This  can  be  done  under  the  general  authority  of  the 
commission  if  their  authority  to  maintain  a  civil  government  is  ratified 
and  continued  by  Congress.  The  insular  treasury  is  ftot  at  present  a 
subtreasury  of  the  United  States,  and  its  relations  with  the  Treasury 
of  the  United  States  are  informal.  It  is  probable  that  convenience 
will  dictate  some  exchanges  and  transfer  of  funds  between  the  insular 
treasury  and  that  of  the  United  States.  It  is  therefore  suggested  that 
specific  authority  be  given  the  Treasurer  of  the  United  States  to 
receive  deposits  in  money  and  to  engage  in  such  transfer  operations 
with  the  treasurer  of  the  Philippine  Islands  as  may  suit  their  mutual 
convenience  without  confusing  their  separate  relations  toward  their 
■  respective  governments.  The  repeated  complaint  of  disbursing  offi- 
cers of  the  Army  and  Navy  that  they  can  not  find  a  legal  depository 
for  their  funds  in  these  islands  would  no  longer  be  well  grounded  if 
authority  were  granted  to  them  by  act  of  Congress  to  treat  the  insular 
treasury  as  a  depository.  This  would  add  something  to  the  cost  of 
conducting  the  insular  treasury,  but  if  the  actual  expenses  of  trans- 
ferring funds  between  the  United  States  and  the  Philippines  were 
defrayed  by  the  Government  of  the  United  States  the  additional  ex- 
penses would  be  assumed  without  prejudice  by  the  insular  government. 

NEED    FOR   A   MORTGAGE  BANK. 

One  of  the  needs  of  the  agricultural  portions  of  the  islands  which 
was  most  strongly  and  repeatedly  set  forth  during  the  tours  of  the 
commission  through  the  provinces  was  an  agricultural  bank.  The 
belief  was  widespread  that  such  a  bank  would  greatly  stimulate  the 
revival  of  agriculture  in  the  Philippines,  which  has  suffered  much 
by  insurrections,  the  death  of  cattle  from  the  rinderpest,  and  the 
deterioration  of  seed  through  the  lack  of  proper  tools  and  methods  of 
culture.  Again  and  again  the  wish  was  expressed  by  the  local  presi- 
dentes  and  by  private  citizens  that  aid  should  be  extended  to  the  small 
farmers,  even  if  it  was  done  at  the  expense  of  the  Government.  The 
commission  is  not  prepared  at  present  to  recommend  the  establishment 
of  a  mortgage  bank,  owned  and  conducted  by  the  Government,  and  it 
recognizes  the  danger  of  locking  up  the  assets  of  a  commercial  bank 
in  landed  securities.  There  appears  to  be  no  reason,  however,  why  a 
mortgage  bank,  organized  according  to  the  methods  which  have  been 
thoroughly  tested  in  Europe,  should  not  be  established  in  the  Philip- 
pine Islands.  The  rate  of  loans  upon  mortgages  in  the  islands  is 
extremely  high,  especially  in  the  sugar-growing  districts,  and  the 
introduction  of  improved  machinery,  by  means  of  cheaper  money, 
would  greatly  add  to  the  volume  of  the  products  and  the  earnings  of 
the  country. 


234:  REPORTS    OK    THE    CIVIL    GOVERNMENT 

The  initiative  in  creating  a  mortgage  bank  must  necessarily  come 
from  the  owners  of  private  capital  if  such  bank  is  not  established 
and  endowed  by  the  Government. 

The  commission  believes  that  authority  should  be  granted  to  charter 
such  banks,  under  proper  safeguards.  The  authority  might  be  con- 
ferred ])v  a  general  grant  of  legislative  power  to  the  government  of 
the  Philippine  Islands,  without  restrictions  of  any  sort;  but  in  order 
to  give  the  assurance  that  proper  safeguards  will  be  thrown  around 
investments  of  capital  in  this  manner,  if  for  no  other  reason,  we 
believe  that  Congress  should  lay  down  by  some  law  some  of  the  con- 
ditions governing  the  organization  of  such  banks.  For  this  reason 
we  recommend  that  Congress  provide  directly  for  the  creation  of 
mortgage  banks,  but  that  they  shall  be  required  to  have  a  capital 
of  not  less  than  $250,000;  that  they  shall  not  be  permitted  to  loan 
over  10  per  cent  of  their  aggregate  resources  to  any  one  person  or 
corporation  nor  to  loan  over  one-third  of  the  market  value  of  the 
property  pledged,  as  determined  by  some  impartial  board,  to  be 
established  under  the  authority  of  the  Government.  a. 

If  a  large  commercial  bank  is  established  in  these  islands,  with 
branches  extending  throughout  the  world,  it  would  not  be  beyond  the 
bounds  of  prudent  banking  policy  to  permit  such  an  institution  to  set 
aside  a  limited  portion  of  its  capital  for  mortgage  business.  It  is  a 
sound  rule  of  banking  that  a  commercial  bank  should  keep  the  bulk 
of  its  resources  in  a  quickly  convertible  form.  This  is  especially  the 
case  where  the  bulk  of  its  obligations  consists  of  deposits  payable  on 
demand.  In  the  case  of  a  large  bank,  however,  with  a  capital  of 
$1,000,000  or  more,  the  limit  of  safety  would  not  be  infringed  if  25 
per  cent  of  its  capital  were  permitted  to  be  loaned  upon  mortgages. 
The  remaining  three-fourths  of  the  capital  would  be  available  to 
strengthen  the  current  assets  in  meeting  emergencies  and  the  demands 
of  the  depositors.  The  rule  that  a  small  percentage  of  capital  may  be 
set  aside  for  mortgage  or  agricultural  loans,  when  such  business  is 
kept  separate  from  commercial  loans  and  is  conducted  with  prudence, 
is  recognized  by  many  economic  writers  and  is  supported  by  the 
example  of  several  of  the  large  European  banks,  notably  the  Austro- 
Hungarian  Bank  and  the  Imperial  Bank  of  Russia. 

It  might  easily  happen,  in  the  absence  of  sufficient  information  to 
attract  an  independent  mortgage  bank  to  the  Philippines,  that  a  large 
bank  established  here  for  other  classes  of  business  would  see  the  benefit 
of  setting  aside  a  portion  of  its  capital  for  such  a  purpose.  We 
recommend,  therefore,  that  authority  to  do  mortgage  business  within 
certain  limits  be  granted  to  commercial  banks  with  a  capital  of 
$1,000,000  or  more,  under  substantially  the  same  restrictions  as  those 
which  may  be  imposed  upon  banks  devoted  wholly  to  loans  upon 
mortgages. 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  235 

GENERAL   CONDITION   OF   THE   TEEASURY. 

The  general  condition  of  the  insular  treasury  is  highl}^  satisfactory. 
On  the  1st  day  of  September,  1900,  when  the  commission  first  assumed 
legislative  power  in  relation  to  income  and  expenditures,  there 
was  in  the  insular  treasury,  available  for  appropriation,  the  sum  of 
$3,023,831.29i,  gold  values,  on  the  basis  of  $2  insular  currency  for  $1 
in  United  States  money.  At  the  date  of  our  last  preceding  report, 
jSovember  30,  there  was  in  the  treasury  available  for  appropriation 
the  sum  of  practically  $2,500,000  gold  values,  the  commission  having 
in  the  period  intervening  between  September  1  and  November  30  made 
large  appropriations  for  general  improvements,  particularly  one  of 
^1.000,000,  gold,  for  building  of  roads  under  the  supervision  of  the 
military  government,  and  another  of  $1,000,000,  gold,  for  carrying  on 
the  improvement  of  Manila  Harbor.  At  the  date  of  this  report,  Sep- 
tember 30, 1901,  there  is  in  the  treasury,  available  for  appropriation, 
the  sum  of  $5,106,518.46,  gold  values.  Meanwhile  all  the  expenses  of 
the  insular  government  have  been  met,  and  very  large  appropriations 
have  been  made  out  of  the  insular  treasur}^  during  that  period  for 
purely  military  and  naval  purposes.  It  is  onl}^  a  reasonable  and  con- 
servative statement  to  say,  that  under  any  proper  management  of  the 
finances  of  the  islands,  the  revenue  will  be  at  all  times  sufiicient  to 
meet  all  ordinary  expenses  of  good  administration  and  to  make  consid- 
erable appropriations  for  large  general  improvements  and  the  erection 
of  public  works.  In  the  ordinary  current  expenses  of  the  islands  we 
include,  for  the  purposes  of  the  statement  now  made,  the  establishment 
and  maintenance  of  an  efficient  police  system  for  the  preservation  of 
good  order,  and  of  necessary  means  of  communication  between  the 
islands  for  transportation  of  mails,  public  officials,  and  revenue  cus- 
toms inspection.  There  is  no  reason  why  the  Government  of  the 
United  States  should  ever  be  called  upon  to  contribute  toward  the 
support  of  the  insular  government,  and  within  a  comparatively  few 
years  after  the  complete  restoration  of  good  order  it  is  entirely  rea- 
sonable to  anticipate  that  the  revenues  of  the  islands  will  be  sufficient 
to  pay  all  expenses  incurred  for  troops,  native  or  American,  and  insu- 
lar police  sufficient  to  maintain  good  order  throughout  the  whole 
archipelago. 

In  addition  to  the  treasury  balance  above  stated  are  the  three  fol- 
lowing items,  which  practically  are  treasur}^  assets: 

1.  Loans  to  provinces  under  act  No.  134 ?55, 000. 00 

2.  Money  loaned  to  provinces  under  act  No.  196 25, 000. 00 

3.  Portable  property  purchased  from  insular  funds  by  the  military  gov- 

ernment and  transfeiTed  from  the  property  returns  of  the  insular 
government  to  the  army  returns,  by  virtue  of  General  Order,  No.  65, 
Division  of  the  Philippines,  issued  April  4, 1901,  and  General  Order, 
No.  .38,  office  of  the  military  governor,  issued  May  11,  1901,  upon 
the  basis  of  low  valuations  stated  by  the  transferring  officer 638, 573.  61 


236  REPORTS    <^K    THE    CIVIL    GOVERNMENT 

with  lists  to  be  added  from  two  officers  who  have  not  yet  reported. 
It  is  understood  thut  conipensution  for  this  property  is  to  be  made  to 
the  insular  oovernment  out  of  army  appropriations  by  the  United 
States  Government.  In  addition  to  the  property  above  mentioned,  16 
o-unboats  purchased  from  the  insular  revenues,  at  a  cost  of  $205,000, 
United  States  currency,  were  transferred  to  the  United  States  Navy 
under  military  orders.  Armament  and  accessories  to  the  ascer- 
tained value  of  $10,l-t7.79,  United  States  currency,  were  also  trans- 
ferred to  the  Navy,  together  with  a  large  quantity  of  such  property  of 
unascertained  values.  It  therefore  appears,  that  up  to  the  date  of  sub- 
mitting- this  report,  there  have  been  turned  over  to  the  United  States 
Government  propert}^  purchased  from  insular  funds  to  the  ascertained 
value  of  $922,721.40,  United  States  currency;  but  the  valuations  thus 
stated  are,  in  the  opinion  of  the  commission,  greatly  below  the  actual 
values. 

The  gunboats  above  referred  to  are  almost  indispensable  for  the 
use  of  the  revenue  service  and  the  inter-island  communication  neces- 
sary for  efficient  government.  It  is  highly  desirable  that  an  arrange- 
ment should  be  made  with  the  Navy  for  a  retransf er  of  those  gunboats 
to  the  insular  government.  They  are  now  of  little  use  to  the  Navy, 
while  the  insular  government  is  to  a  degree  paralyzed  for  the  want  of 
them.  Great  loss  will  ensue  if  the  insular  government  must  wait  one 
or  two  years  for  the  construction  of  new  boats  to  perform  service 
greatly  needed  immediately,  which  service  could  be  well  performed 
by  the  gunboats  in  question. 

SEIZED   FUNDS   AND    SPECIAL    DEPOSITS   IN    THE   TREASURY. 

The  insular  treasury  contains  a  considerable  amount  of  Spanish 
funds  seized  by  the  military  authorities  at  the  time  of  and  after  the 
occupation  of  the  islands  by  the  American  Army  and  seized  from 
insurrectos  since  that  time.  These  funds  have  not  been  considered  as 
a  part  of  the  general  revenue  of  the  islands  and  await  such  disposition 
by  the  proper  authorities  as  may  hereafter  be  determined  upon. 

A  summary  of  Spanish  seized  funds  is  as  follows: 

Funds  of  the  Spanish  general  treasury $795,  707.  71 

Funds  of  the  Spanish  mint -     62,  856.  08 

Funds  seized  at  the  ayuntamiento 5, 167. 54 

Funds  seized  at  the  internal-revenue  office 24,  527. 60 

Funds  of  the  Spanish  civil  governor 956. 02 

Funds  of  the  Philippine  lancers 950. 00 

Interest  on  deposits,  Philippine  funds 64.  91 

Total 890,229.86 

from  which  credits  to  the  amount  of  $200  have  been  allowed  by  the 
auditor  under  rule  28  of  act  No.  90,  leaving  as  a  balance  of  Spanish 
seized  funds  $890,029.86,  or,  reduced  to  United  States  currency  at  the 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  237 

ratio  of  2  to  1,  $445,014.93;  but  as  a  small  portion  of  the  seized 
funds  was  in  Spanish  gold  pieces  and  bars,  the  actual  value  reduced  to 
United  States  money  would  be  about  14,000  more  than  the  sum  last 
above  stated.  In  addition,  there  was  seized  at  the  mint  by  the  United 
States  forces  at  the  time  of  the  occupation,  and  with  which  the  treasurer 
of  the  archipelago  is  charged,  a  quantity  of  damaged  silver  coin,  of 
gold  and  silver  metal  mixed,  copper  ingots,  bar  silver,  and  vmfinished 
silver  coins,  some  of  which  are  claimed  to  be  the  property  of  private 
individuals.  There  are  also  in  the  insular  treasury  about  $110,000 
Mexican,  of  155,000  gold  values,  seized  by  the  military  authorities  at 
the  Spanish  general  treasury,  at  the  ayuntamiento,  and  in  the  junta 
provincial,  being  mostly  deposits  previously  made  as  guarantees  for 
government  contracts  or  as  security  for  services  in  official  capacities. 

There  are  also  special  deposits  in  the  treasury  of  funds  seized  from 
alleged  insurrectos  or  from  insurrecto  governments  at  various  times 
by  military  officers  since  the  American  occupancy,  amounting  in  the 
aggregate  to  approximately  $300,000  Mexican,  or  $150,000  gold  value, 
at  the  ratio  of  2  to  1,  besides  articles  of  personal  property  seized, 
such  as  jewelry,  rings,  earrings,  necklaces,  watches,  field  glasses, 
silverware,  melted  silver,  insurrecto  flags,  stick  pins,  medallions,  and 
cuff  buttons,  and  miscellaneous  articles.  A  detailed  statement  of  the 
seized  funds  and  property  is  hereto  annexed  and  marked  "Appendix  V." 
While  all  the  above-stated  seized  funds  and  property  are  deposited  in 
the  treasury  and  the  treasurer  is  responsible  for  the  same,  jet  none  of 
them  are  included  in  the  general  treasury  balances  hereinafter  stated. 

The  seized  copper  coin,  which  amounted  to  a  very  large  sum,  as  will 
be  seen  from  the  exhibit,  is  of  materiallj^  higher  exchange  value  in 
Spain  than  its  currenc}^  value  here  in  these  islands.  Under  an  order 
issued  b}^  Major-General  Otis,  a  considerable  portion  of  it  has  been 
placed  in  circulation  here  from  time  to  time  for  the  purpose  of  fur- 
nishing a  medium  for  small  change,  but  it  does  not  remain  in  circula- 
tion long.  It  is  hoarded  by  speculators  and  sent  to  Spain,  where  a 
very  large  profit  accrues.  This  course  is  considered  very  undesirable, 
and  it  is  recommended  that  the  commission  be  authorized  immediately 
to  sell  such  seized  copper  coin,  after  due  advertisement  in  this  and  for- 
eign countries,  and  to  provide  for  its  exportation  from  the  coiuitry  to 
Spain  and  the  deposit  of  the  proceeds  of  the  sale  to  the  account  of 
seized  funds  in  lieu  of  the  copper  coin  sold.  As  to  the  general  seized 
funds,  it  is  recommended  that  Congressional  action  should  l)e  taken 
authorizing  the  commission  to  turn  the  seized  funds,  so  far  as  title  to 
them  shall  not  be  established  through  the  courts  in  favor  of  private 
individuals,  into  the  general  treasury  of  the  islands,  to  constitute  a 
general  school  fund  for  the  support  of  public  schools,  with  the  proviso 
that  where  a  specified  portion  of  the  seized  funds  was  collected  as  taxes 

23181—04 16 


238  REPORTS    OK    TIIK    CIVIL    (JOVEKNMENT 

by  the  insurrectionary  government  in  any  particular  province  those 
funds  may  be  returned  to  the  treasurer  of  the  province  from  which 
they  came,  to  be  used  for  the  general  provincial  purposes  of  building- 
roads  and  other  public  works.  All  tliese  funds  were  collected  ulti- 
mately for  insular  uses,  and  it  seems  to  the  commission  that  the  United 
States  Government  might  feel  justilied  in  causing  them  to  be  dedicated 
to  the  interests  of  the  islands  through  the  public-school  fund  above 
suggested.  Many  of  the  seized  articles,  aside  from  such  as  have  his- 
torical value  as  mementos,  should  be  converted  into  money  by  sale,  and 
those  which  have  historic  value  as  mementos,  if  any,  might  be  reserved 
for  deposit  in  a  local  museum. 

INSULAR   BUDGET. 

We  regret  that  it  is  impracticable  to  present  at  this  time  a  complete 
statement  of  the  financial  transactions  of  the  Philippine  government 
for  the  fiscal  year  1901.  The  auditor  for  the  archipelago  states  that 
although  he  "is  required  by  rule  38  of  act  90  to  submit  an  annual 
report  of  the  financial  transactions  of  the  government  as  soon  after  the 
close  of  the  fiscal  year  as  the  accounts  shall  have  been  adjusted,"  it  is 
impracticable  at  this  date  to  present  a  comprehensive  report  of  that 
character,  but  that  it  is  in  course  of  preparation  and  will  be  sub- 
mitted at  the  earliest  practicable  date.  The  act  requiring  the  auditor 
to  make  such  annual  report  did  not  become  efl'ective  until  April  1, 
1901,  or  until  the  beginning  of  the  final  quarter  of  the  fiscal  year  end- 
ing June  30,  1901,  and  it  is  extremely  difficult  to  comply  satisfactorily 
with  the  requirements  of  rule  38  of  act  No.  90,  because  of  the  method 
of  keeping  and  rendering  accounts  followed  before  April  1,  1901. 
Disbursements  were  not  made  altogether  by  departments  or  offices. 
Each  department  made  disbursements  in  its  own  behalf,  and  the  dis- 
bursing quartermaster  of  civil  bureaus  as  well  furnished  supplies  and 
made  additional  disbursements  in  behalf  of  almost  every  department 
of  the  civil  government  without  segregation.  When  the  accounts  of 
the  fiscal  year  are  settled  and  adjusted  a  summary  of  each  disbursing 
officer's  account  will  be  compiled  and  included  in  the  annual  report  of 
the  auditor. 

When  the  accounting  bureau  was  organized  in  February  of  this  year 
the  settlements  of  accounts  averaged  one  year  in  arrears,  and  under 
your  instructions  it  was  made  incumbent  upon  the  reorganized  office  to 
prepare  detailed  statements  of  receipts  and  disbursements  of  the  gov- 
ernment of  the  archipelago  from  the  beginning  of  American  occu- 
pancy. It  has  been  impossible  in  the  brief  time  since  February  to 
complete  this  work.  All  customs,  postal,  and  internal-revenue  accounts 
have  been  settled  and  adjusted  to  June  30,  1901,  and  the  settlement  of 
the  miscellaneous  accounts  is  approaching  completion.  The  work  of 
the  auditor's  office  is  therefore  rapidly  becoming  current,  but  from  the 
material  at  hand  important  and  useful  data  can  be  compiled.     The 


OF   THE    PHILIPPINE    ISLANDS,   1900-1903.  239 

auditor's  preliminary  report,  for  the  purpose  of  furnishing  data  for 
use  in  this  report,  dated  October  7,  1901,  and  addressed  to  the  secre- 
tary of  finance  and  justice  of  the  Philippine  Islands,  is  hereto  attached 
and  marked  "Appendix  W."  The  exhibit  covers  quite  completely  all 
receipts  and  disbursements  from  August  13, 1898,  the  period  of  Amer- 
ican occupancy,  down  to  June  30,  1901.  From  the  data  there  shown 
it  appears  that  the  total  receipts  for  the  fiscal  year  ending  June  30, 
1901,  amounted  in  money  of  the  United  States  to  $11,263,317.07,  of 
which  81  per  cent  accrvied  from  customs,  8.3  per  cent  from  internal 
revenue,  8  per  cent  from  the  post-ofiice,  5.8  per  cent  from  miscella- 
neous receipts,  1  per  cent  from  insurgent  seized  funds,  and  4  per  cent 
from  refunds  to  appropriations. 

The  miscellaneous  receipts  included  such  items  as  receipts  on  accounts 
of  building  permits,  taxes,  water  rents,  prison  sales,  fines,  confisca- 
tions, market  and  matadero  fees,  license  of  cemeteries,  etc.  The 
greater  portion  of  these  revenues  will  accrue  to  the  city  of  Manila 
under  its  charter,  but  new  sources  of  miscellaneous  revenues  are  aris- 
ing as  the  civil  government  progresses,  notably  the  ice  plant,  the  Signal 
Corps  service,  the  prison  sales,  and  the  board  of  health;  but  it  appears 
that  approximately  four-fifths  of  the  revenues  of  the  archipelago  are 
derived  from  customs  sources.  During  the  same  fiscal  j^ear  the  total 
of  withdrawals  from  the  treasury  amounted  to  $7,063,921.67,  money 
of  the  United  States.  There  was  on  the  30th  day  of  June  in  the 
insular  treasur}^  a  total  sum  of  $6,667,927.71,  including  moneys  appro- 
priated but  not  at  that  time  withdrawn. 

The  expenditures  during  that  fiscal  yesir  were  $280,816.22  for  the  cus- 
toms service,  $128,274.29  for  the  internal  revenue  service,  $120,868.03 
for  the  post-oflice  service,  $6,533,864.13  for  all  other  services  and  dis- 
bursements, and  $100  of  Spanish  seized  funds.  The  great  embarrass- 
ment in  making  a  satisfactory  budget  arises  from  the  transitional 
nature  of  receipts  and  disbursements  which  affected  certain  offices  for 
practicall}^  a  year  past.  Great  numbers  of  civil  offices  that  were  for- 
merly filled  by  officers  and  soldiers  detailed  from  the  Army  of  the 
United  States,  without  salaries  from  the  insular  treasury,  have  been 
gradually  filled  by  purely  civil  officers  and  have  required  a  constant 
increase  of  expenditure  for  that  purpose. 

Down  to  April  1, 1901,  very  large  sums  were  appropriated  from  the 
insular  trcasur}^  for  the  payment  of  purel}^  military  and  naval  expenses, 
and  since  that  time  large  sums  have  been  appropriated  for  the  pay- 
ment of  several  thousand  Filipino  scouts  for  purely  military  purposes; 
but  the  disbursements  in  this  respect  have  been  gradually  decreased 
and  will  doubtless  soon  almost  entirely  cease.  Meanwhile  new  depart- 
ments and  bureaus  of  the  insular  government  have  been  created  from 
time  to  time,  as  the  sphere  of  its  activity  extended  in  new  and  needed 
directions,  and  the  expenditures  have  largely  increased  with  the 
increase  of  clerical  force  and  supplies  thus  made  necessary.     Likewise 


240  REPORTS    OF    THE    CIVIL    GOVERNMENT 

lurue  sums  were  paid  from  the  insular  treasury  during  the  whole  of 
the  last  (iscal  year  for  the  government  of  the  city  of  Manila.  Under 
the  charter  of  that  city,  which  went  into  effect  on  the  7th  day  of 
August,  11*01,  TO  per  cent  of  these  expenses  will  be  l)orne  hereafter  by 
the  city.  The  accounts  have  likewise  been  complicated  by  the  fact 
that  when  the  central  government  passed  from  that  of  administration 
bv  the  military  authorities  to  the  civil  authorities  large  sums  of  money 
which  had  been  appropriated  for  disbursements  by  military  officials 
were  returned  to  the  treasury  as  repayments,  thereby  largelj^  swelling 
the  apparent  receipts,  although  not  affecting  the  actual  income. 

It  was  stated  in  our  last  report  that  while  October,  1900,  was  the 
banner  month  for  revenue,  it  was  probable  that  after  January  1, 1901, 
the  revenue  would  be  likely  to  materially  increase,  so  as  perhaps  to 
equal  $1,000,000  a  month.  United  States  money.  This  expectation  has 
been  realized,  the  remainder  of  the  fiscal  year  showing  an  average 
income  of  approximately  $900,000,  United  States  money,  per  month. 
During  that  period,  also,  legislation  was  enacted,  elsewhere  referred  to 
in  this  report,  which  diverted  a  great  portion  of  the  internal  revenue 
from  the  insular  treasury  to  provincial  and  municipal  treasuries,  and 
this  introduced  another  element  into  the  estimates  of  probable  income 
and  expenditures  for  the  coming  year.  As  the  law  now  stands,  the 
income  of  the  insular  government  is  very  largely  from  customs  receipts 
alone,  but  meanwhile  a  new  tariff  has  been  enacted,  as  elsewhere  in 
this  report  detailed,  under  which  it  is  probable  that  the  revenues  from 
customs  service  will  materially  decrease  because  the  rates  have  been 
so  largel}^  reduced.  The  effect  may  not  be  felt  during  the  first  months 
of  the  operations  of  the  new  law,  which  goes  into  force  on  November 
15,  1901,  because  importers  may  import  large  amounts  of  goods  for 
the  purpose  of  supplying  the  market  at  lower  prices  rendered  possible 
by  lower  customs  duties;  but  after  the  market  becomes  thoroughly 
supplied  with  goods  introduced  under  the  new  tariff,  there  will  be 
only  the  ordinar}^  current  demand,  under  much  lower  rates  of  duties. 
It  is  hoped  that  the  lower  prices  will  enable  the  people  to  purchase 
and  consume  much  more  largely,  and  that  the  lower  duties  may  in  this 
way  to  a  degree  be  counteracted;  but  in  any  event  the  available  sur- 
plus in  the  treasury  is  now  so  large  that  the  government  will  have 
abundant  means  at  hand  for  maintaining  itself  for  the  incoming  year, 
irrespective  of  the  revenue  that  may  accrue  during  the  transitional 
period  incident  to  the  new  tariff'.  The  country  is  so  rich  in  resources 
that  if  it  becomes  necessary  new  plans  of  internal  taxation  can  be 
provided  to  meet  all  the  necessities  of  economical  administration. 
As  elsewhere  stated,  the  subject  of  internal-revenue  taxes  is  under 
consideration,  and  a  bill  providing  for  such  taxation  is  in  the  hands  of 
a  committee  of  the  commission. 

We  are  able  to  supplement  the  reports  for  the  fiscal  year  ending 
June  30,  1901,  by  a  statement  of  the  actual  receipts  and  disbursements 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903,  241 

for  the  first  quarter  of  the  fiscal  3^ear  of  1902,  from  June  30  to  Sep- 
tember 30,  1901.     The  receipts  are  as  follows  for  the  three  months: 

From  customs $2,  017,  754.  05 

From  internal  revenue 177, 181.  44 

From  the  post-office 29,036.19 

Miscellaneous  sources 164, 114.  42 

From  insurgent  seized  funds '     4,  724.  97 

Taxes  collected  in  the  city  of  Manila 100, 925.  77 

Refunds  to  appropriations 1»  352, 583. 10 

Total  receipts  for  the  three  months 3,  846,  319. 95 

The  withdrawals  of  revenue  from  the  Treasury  for  disbursements 
for  the  same  period  were  as  follows: 

For  customs  ser\'ice $103,  826. 68 

For  internal  revenue  (the  internal  revenue  having  been  largely  with- 
drawn from  the  Treasury  and  disbursed  to  provinces  appearing  under 

this  head  as  a  disbursement) 164, 650.  88 

For  post-office 39,011.88 

For  miscellaneous  purposes 2,  426, 154.  89 

For  the  city  of  Manila - 320,427.63 

Total 3,054,071.96 

On  the  80th  day  of  September  the  balance  in  the  treasury,  includ- 
ing Spanish  seized  funds,  amounted  to  17,160,175.70,  United  States 
money,  of  which  the  balance  available  for  appropriation  has  been  else- 
where stated.  In  view  of  the  foregoing  fact,  the  statement  of  the 
budget  for  the  ensuing  year  must  necessarily  contain  large  elements 
of  uncertainty;  but  making  the  best  use  practicable  of  the  materials 
at  hand  the  following  is  submitted  as  an  approximate  statement  for 
the  ensuing  quarter: 

Receipts  from  customs $2,000,000.00 

Internal  revenue 17,  500.  00 

Post-office 30,000.00 

Miscellaneous 150,000.00 

Municipality  of  Manila 300,000.00 

Insular  ice  plant 60,000.00 

Total  estimated  inconje 2, 557, 500. 00 

The  estimated  disbursements  for  the  ensuing  quarter  are  based  upon 

the  ofiicial  estimates,  submitted  to  the  commission  by  all  the  depart- 
ments, for  appropriations,  and  are  as  follows: 
United  States  Philii)i)ine  Commission,  executive  bureau,  Philippine 

civil-service  board,  and  the  insular  punihasing  agent $526,  01 8.  86 

Dei)artment  of  interior 116,  736. 82 

Department  of  commerce  and  police 368. 456.  55 

Department  of  finance  and  justice 299,  883.  36 

Department  of  public  instriiction 482, 385. 00 

Miscellaneous,  including  chief  quartermaster  and  chief  commissary  of 

the  division 304,437.39 

Municipality  of  Manila 400, 000. 00 

Total 2,497,917.98 


242  REPOHTS    OF    THE    CIVIL    GOVERNMENT 

Included  in  these  disbursements  are  $441, 115. 10  for  the  insuhir 
purchasing  agent;  for  native  scouts,  approximately  $250,000,  and 
for  extraordinar}'  supplies  and  the  purchtise  of  launches,  $18,000. 
The  disbursements  to  the  insular  purchasing  agent  will  all  be  reim- 
bursed, and  the  sum  included  for  native  scouts  will  only  in  small  part 
be  needed,  in  view  of  the  pending  enlistment  of  these  scouts  into  the 
United  States  service.  These  items  aggregate  $709,116.16,  Avhich  are 
not  properly  disbursements  for  current  expenses.  Deducting  this 
aggregate,  $709,115.16,  from  the  aggregate  estimate  of  expenditures 
for  the  quarter,  we  have  a  net  estimate  of  expenses  for  the  quarter  of 
$1,788,802.82.  The  total  estimated  income  for  the  quarter  being 
$2,557,500  and  the  total  estimated  disbursements  being  $1,788,802.82, 
the  apparent  surplus  for  the  quarter  is  $768,697.18. 

It  is  hoped  that  the  remaining  quarters  of  the  fiscal  year  will  show 
as  favorable  a  balance  in  favor  of  receipts,  leaving  a  substantial  sum, 
aside  from  the  present  available  surplus,  for  permanent  improvements. 
We  inclose  copy  of  the  report  of  the  insular  treasurer  for  the  fiscal 
3^ear  ending  June  30, 1901,  together  with  the  exhibits  thereto  annexed, 
which  is  marked  Appendix  X,  and  the  report  of  the  collector  of  cus- 
toms of  the  islands  and  of  the  chief  port  for  the  same  period,  which 
is  marked  Appendix  Y. 

BUDGET    FOR   THE    CITY   OF   MANILA. 

The  budget  for  the  city  of  Manila  is  exceedingly  difficult  to  state. 
The  city  has  been  under  the  operation  of  its  charter  for  less  than  two 
months.  Its  land  values  for  the  purposes  of  taxation  have  not  yet  been 
ascertained,  nor  are  its  other  sources  of  income  yet  known  with  cer- 
tainty. The  expenses  of  the  city  under  the  administration  of  the 
provost-marshal-general  were  very  large,  and  the  accounts  were  kept 
in  such  manner  that  it  was  impracticable  to  distinguish  with  clear- 
ness the  expenditures  that  were  purely  for  the  benefit  of  the  city  and 
those  that  were  for  the  benefit  of  the  military  government  at  large. 
It  appears  from  the  report  of  F.  G.  Downe}^,  major  and  paymaster, 
U.  S.  A. ,  chief  of  the  department  of  receipts  and  disbursements  in  the 
provost-marshal's  office,  copy  of  which  is  hereto  annexed  and  marked 
Appendix  GG,  that  the  total  expenditures  in  his  department  for  the 
last  fiscal  year  were  $1,626,107.81,  of  which  $288,423.11  was  for  spe- 
cial improvements,  $164,964.52  for  insular  purposes,  $33,823.13  for 
military  purposes,  and  $1,139,092.05  for  current  city  expenditures, 
while  the  total  income  of  the  city  was  $434,880.38,  all  in  money  of  the 
United  States;  but  during  that  period  large  sums  collected  in  the  city 
as  internal  revenue  were  treated  as  insular  receipts  and  not  as  city 
income.  Thereafter  such  receipts  inure  to  the  citj'  treasury.  The 
income  and  expenditures  under  the  Spanish  regime  were  very  much 
less  than  under  the  American,  but  under  the  latter  the  streets  have 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903. 


243 


been  cleaned  and  macadamized,  great  sums  have  been  expended  in  the 
health  department  in  improving  the  sanitarj^  condition  of  the  city,  large 
salaries  have  been  paid,  and  in  ever}^  respect  far  more  efficient  service 
has  been  rendered.  The  following  budget,  showing  the  estimated 
receipts  and  disbursements  for  the  fiscal  year  ending  June  30,  1902, 
has  been  prepared  hj  the  municipal  board  of  the  cit}^  and  undoubtedly 
furnishes  the  most  satisfactory  data  available: 

Estimate  of  receipts  and  expenditures  of  the  city  of  Manila  from  August  7,  1901,  to  June 

30,  1902. 

ESTIMATES  OF  RECEIPTS. 


From  what  source. 


Real-estate  tax,  1901 

Real-estate  tax,  one-half  only  for  1902 

Industrial  tax 

Market  fees 

Certificates  of  registration 

Internal-revenue  stamps' 

Municipal  court,  fines  and  fees 

Slaughterhouse  fees * 

Liquor il05, 000 

Business 25,000 

Licenses: 

Entertainments 10, 500 

Vehicles  and  carts 8, 000 

Peddlers 7, 200 

Dogs 1, 450 

Delinquent  frontage  tax 

Vehicle  taxes  and  stock  registration 

Justice  of  the  peace,  fees  and  fines 

Sheriff's  fees 

Water  rents 

Weights  and  measures  and  building  permits 

Miscellaneous,  vehicle  equipment,  ground  rents,  etc 

Total 


S250, 000 
187,500 
200, 000 
100,000 
60,000 
70,000 
60, 000 
50,000 


157, 150 
30,000 
19, 500 
2,000 
2,000 
40,000 
7,250 
7,500 


1,242,900 


ESTIMATE  OF  EXPENDITURES. 


Department. 

Regular  sup- 
plies   (ex- 
penses). 

03 
C 

3- 

Permanent       improvements, 
equipments,     etc.     (nonre- 
curring expenses). 

a 

3 
O 

a 

3 

o 

Municipal  board  (in- 
cluding  expenses 
of  advisory  board, 
secretary's    office, 
and  disbursing  of- 
ficer)   

8-12,000 

S22, 600 

sis.nofl 

$82,  GOO 

9S2,  GOO 

244 


REPORTS    OK    TIIK    CIVIL    GOVKR^fMKNT 


Estimate  of  receipts  and  expenditures  of  the  cili/  of  Manila,  etc. — Continued. 
ESTIMATE  OF  EXPENDITURES— Continued. 


Peiiartmont. 


Department  engi- 
neering and  pub- 
lic, works,  city  en- 
gineer's office 


Streets,  parks,  docks, 
and  wharves 


Buildingand  illumi- 
nation  

Water  supply  and 
sewers 


Public  instruction. 
Fire  department — 


Police  department  .. 

Law  department: 

Office  city  attor- 
ney   

Office  prosecut- 
ing attorney... 

Municipal  courts 

Sheriff's  office  . . . 

Justice  peace 
courts 

Courts  first  in- 
stance   

Supreme  court  . . 


City    aasessor    and 
collector 


Santa  Cruz  Bridge. 
Total 


"> 


S20, 000 


30, 000 

77, 000 


14,500 

14,400 
10,700 
6,900 

2,500 


52, 000 


1,004,300 


$4,800 


12,  000 

35,000 
2,  300 

13,000 


325 
1,000 
1,200 

250 

1,400 
1,000 


378,250 


SI,  100 


10, 500 


37,800 


as 


JI20, 000 
I  41,000 


61,000 


Permanent  improvements, 
equipments,  etc.  (nonre- 
curring expenses.) 


Repairs  to  Santolan 
road S;5, 000 

Repairs  to  Linieta  sea- 
wall      1,500 

Repairing  bridge  of 
Spain 15,  (lOO 

Refitting  slaughter- 
house      2,500 

Finishing  city  markets.  42, 500 


Construction  of  crema- 
tory    35, 000 

Construction  of  scows  . .    5, 000 

Purchase  of   means   of 

transportation 47, 600 


School  furniture. 


Fire      apparatus      and 

equipment 44, 500 

Repairs  to  6  stations 15, 000 

Fire-alarm  system 35, 000 


Police  alarm  system. 


Law  library 1,050 

Books,etc 300 


Emergency  clerks . 


338, 950 


S24, 800 


06,500 


399, 000 


87, 500 
95, 400 


65, 000 


89, 800 
G,  500 


51, 000 


94, 500 


558, 200 
35, 000 


14,725 
11,700 
8,100 

2, 750 

1,400 
1,000 

1,950 


61,000 
7,000 
40,000 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  245 

Estimate  of  receipts  and  expenditures  of  the  city  of  Manila,  etc. — Continufe.1. 

RECAPITULATION. 

Estimate  of  receipts •--  Sfl. 2^900 

Estimate  of  expenditures ^1'  ^^0, 300 

30  per  cent  of  expend  itures  to  be  paid  by  insular  government 546, 090 

Expenses  to  be  defrayed  by  municipality 1,274,210 

Estimated  deficit •  -  •         31, 310 

CUSTOMS   TARIFF. 

All  the  revenues  that  have  accrued  to  the  insular  treasury  from  the 
collection  of  customs  duties  since  the  American  occupation  have  been 
based  upon  the  tariff  laws  which  were  in  force  under  the  Spanish 
regime,  and  revised,  with  minor  modifications,  by  order  of  Major- 
General  Otis.  The  duties  thus  imposed  have  been,  in  some  respects, 
burdensome,  and,  while  producing  a  large  revenue,  have  yet  been 
unjust  in  their  operation  upon  many  classes  in  the  community.  The 
duties  upon  necessaries  of  life  were  generally  high,  while  those  upon 
luxuries  were  usually  low.  The  tariff  in  its  practical  operation  was 
not  adapted  to  encourage  the  importation  of  goods  produced  or  man- 
ufactured in  the  United  States.  The  commission  entered  upon  the 
work  of  its  revision  in  the  fall  of  the  year  1900,  intrusting  the  prepa- 
ration of  the  first  draft  to  George  W."  Lyon,  who  had  had  large  expe- 
rience as  surveyor  of  the  port  of  New  York.  After  Mr.  Lyon  had 
completed  his  draft  it  was  revised  by  the  commission,  with  his  aid,  and 
then  printed  and  widely  distributed  in  the  islands.  Public  sessions  of 
the  commission  were  held  for  discussion  of  the  various  schedules,  and 
the  views  of  all  local  importers  and  consumers  who  wished  to  be  heard 
were  received  and  -considered.  As  a  consequence  of  these  public  ses- 
sions modifications  were  made  in  the  bill  as  first  drawn,  and  after  its 
completion  it  was  forwarded  to  Washington  for  your  correction, 
modification,  and  approval. 

The  theory  of  the  tariff'  as  constructed  by  the  commission  was  to 
give  reasonable  encouragement  to  the  productions  and  manufactures 
of  the  Philippine  Islands,  greatly  to  reduce  the  cost  of  importing  the 
necessaries  of  life,  particularly  those  produced  or  manufactured  in  the 
United  States,  to  increase  the  duties  upon  luxuries,  to  give  substantial 
or  entire  freedom  from  the  imposition  of  all  duties  upon  certain  arti- 
cles imperatively  needed  in  the  islands,  and  to  make  the  duties  specific 
instead  of  ad  valorem  to  the  fullest  extent  that  was  practicable.  In 
Washington,  as  we  understand,  measures  were  taken  to  secure  sug- 
gestions from  all  citizens  of  the  United  States  interested  in  trade  with 
the  Philippines,  and  modifications  were  made  in  the  schedules  as  sub- 
mitted l)y  the  commission,  the  most  important  l)oing  the  introduction 
of  a  minimum  ad  valorem  duty  in  many  of  the  schedules  where  it 
seemed  that  a  strictly  specific  duty  would  prevent  discrimination  in 
the  assessment  of  duties  between  articles  of  high  cost  and  great  per- 
fection of  workmanship  and  those  of  the  same  class  which  were  far 
inferior  in  quality,  workmanship,  and  value. 


246  REPORTS    OF    THE    CIVIL    GOVERNMENT 

Upon  the  completion  of  the  modifications  suggested  at  Washington 
and  their  return  to  Manila  further  i)ul)lic  hearings  were  had  after  due 
notice,  and  other  modifications  were  made  in  view  of  new  information 
acc^ui  ivd  at  the  public  hearings.  The  new  modifications  were  submitted 
to  you  b}'^  cable  and  approved.  On  the  17th  day  of  September,  1901, 
the  new  tariff  law  was  enacted,  to  become  effective  on  the  15th  day  of 
November,  1901,  with  the  important  proviso  that  during  the  first  sixty 
days  after  the  law  becomes  effective  importers  of  goods  en  route  to 
Manila  at  the  time  the  law  becomes  effective  might  elect  to  pay  under 
the  new  tariff'  or  the  old.  That  the  new  tariff  will  furni.sli  needed 
relief  to  business  men  and  consumers  here  is  certain;  that  its  effect  will 
be  for  a  time  to  reduce  the  revenue  is  probable;  but  it  is  hoped  that 
ultimately  consumption  will  be  so  increased  when  the  islands  become 
entirely  pacified  and  the  people  acquire  new  wants  that  the  revenue 
may  be  at  least  as  much  as  under  the  existing  tariff. 

In  the  consideration  of  the  final  modification  of  the  tariff  bill,  after 
its  return  from  Washington,  the  commission  have  had  the  benefit  of 
the  assistance  and  suggestions  of  Mr.  W^.  Morgan  Shuster,  appointed 
collector  of  customs  for  the  archipelago,  and  Mr.  Charles  A.  Conant, 
elsewhere  referred  to  in  this  report.  Both  these  gentlemen  met  repre- 
sentative business  men  in  San  Francisco,  and  there  received  suggestions 
as  to  changes  that  ought  to  be  made  in  the  tariff,  and  were  thus  enabled 
to  give  to  the  commission  valuable  information.  Their  aid  has  been 
greatly  appreciated. 

CUSTOMS   ADMINISTRATIVE   BILL. 

A  customs  administrative  bill,  which  has  been  prepared  under  your 
direction,  will  be  enacted  as  soon  as  possible  after  consideration  by  the 
commission,  and  after  submitting  to  you  such  modifications,  if  any. 
therein  as  may  seem  to  the  commission  expedient,  in  view  of  their  own 
local  knowledge  and  of  the  suggestions  tbst  may  be  received  from  dis- 
cussion here. 

THE    CUSTOMS   SERVICE. 

At  the  time  of  the  arrival  of  the  commission  in  the  islands  the  col- 
lector of  customs  of  the  islands  and  of  the  chief  port  was  Col.  William 
F,  Spurgin,  who  had  been  detailed  for  that  purpose  by  the  military 
governor.  The  deputy  collector  was  Col.  George  R.  Colton.  Colonel 
Spurgin  having  been  relieved  on  account  of  ill  health,  he  was  suc- 
ceeded by  Gen.  James  F.  Smith,  U.  S.  V.,  on  the  8th  day  of  October, 

1900,  who  continued  to  perform  the  duties  of  the  office  until  June  30, 

1901,  when  he  was  released  from  military  service  and  appointed  as  one 
of  the  judges  of  the  supreme  court  of  the  Philippine  Islands.  The 
duties  of  collector  were  performed  by  Colonel  Colton,  deputy  collector, 
as  acting  collector,  until  September  17,  1901,  at  which  time  the  new 
collector,  Mr.  W.  Morgan  Shuster,  assumed  the  duties  of  his  office. 
Very  full  details  as  to  the  whole  customs  service  of  the  islands,  both 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  247 

under  the  Spanish  regime  and  under  American  authority,  are  contained 
in  the  annual  report  of  the  collector  of  customs  of  the  islands  and  of 
the  chief  port  for  the  fiscal  jesir  ending-  June  30,  1901,  a  copy  of  which 
is  hereto  annexed,  which  report  was  made  to  the  military  governor. 
This  copy  contains  tabulated  statistical  data  and  additional  statistical 
exhibits  completed  to  include  June  30,  1901,  the  original  report  made 
to  the  militar}^  governor  not  covering  the  entire  fiscal  year.  We  annex, 
also,  a  supplement  to  said  report,  dated  September  16,  1901,  furnished 
by  Deputy  and  Acting  Collector  George  R.  Colton,  which  is  marked 
"Appendix  Y." 

These  exhibits  show  that  during  the  period  of  American  occupancy 
the  volume  of  business  has  been  about  four  times  as  great  as  during 
normal  conditions  under  Spanish  control,  notwithstanding  the  dis- 
turbed conditions  which  have  existed  during  the  greater  portion  of  the 
period  of  American  occupancy  so  far  as  customs  receipts  can  show  the 
amount  of  business  transacted;  but  substantially  the  same  results  are 
also  shown  by  considering  the  number  of  vessels  cleared  and  entered, 
tonnage  of  vessels,  and  the  value  of  property  imported  and  exported. 
It  appears  that  merchandise  has  been  imported  from  forty  different 
countries  during  and  since  1898.  Hongkong  headed  the  list  in  1898, 
1899,  and  1900,  but  mainly  because  of  the  fact  that  under  existing 
rules  a  large  quantity  of  merchandise  coming  from  the  United  States, 
England,  and  the  Chinese  Empire,  amounting  to  probably  70  per 
cent  of  the  total  imports,  was  credited  to  Hongkong,  having  been 
shipped  to  Philippine  ports  from,  and  invoiced  at,  Hongkong.  The 
collector  states  that  this  merchandise  should  have  been  credited  to 
other  countries  approximately  as  follows: 

^^  Percent. 

United  States 25 

England - - 25 

Chinese  Empire - 20 

Under  the  new  system  of  crediting  merchandise  to  the  countries  of 
origin,  adopted  in  1901,  Hongkong  has  dropped  to  the  eighth  place  in 
the  list.  Notwithstanding  the  insurrection,  exports  have  almost  kept 
pace  with  imports,  exports  amounting  to  165,345,052  and  imports  to 
$69,469,600,  United  States  currency.  Of  imports,  cotton  goods  stand 
at  the  head  of  the  list,  with  a  value  of  $17,839,366;  rice  following, 
with  a  value  of  $9,368,825,  beer  and  other  liquors  forming  the  next 
most  important  item,  of  the  value  of  $3,572,088.  The  report  of  the 
collector  indicates  that  Manila  leads  San  Francisco  and  New  Orleans 
in  customs  receipts  during  the  fiscal  year  ending  June  30, 1901.  That 
report  contains  thirty-three  exhibits,  analyzing  and  classifying  the 
whole  work  of  the  customs  department  from  the  ])eginning  of  Ameri- 
can occupancy  down  to  the  close  of  the  last  fiscal  year.  The  exhibits 
are  so  complete  and  exhaustive  that  it  would  be  impracticable  and  of 
little  value  here  to  summarize  them.  They  make  a  remarkable  show- 
ing of  th<>.  increase  in  the  general  business  of  the  islands  under  Ameri- 


248 


REPORTS    OK    THE    CIVIL    GOVERNMENT 


can  sovereignty,  and  furnish  ground  for  lielieving  that  much  greater 
progress  will  be  made  when  the  islands  are  entirely  pacified  and  the 
work  of  developing  the  country  under  progressive  methods  shall  be 
fairlj"  under  way. 

INTERNAL   REVENUE. 

At  the  beginning  of  the  fiscal  year  1901  the  organization  provided 
for  the  bureau  of  internal  revenue  under  General  Orders  No.  54, 
M.  G.  O.,  April  16,  1900,  had  not  been  extended  throughout  the 
archipelago;  but  there  had  been  appointed  84  officers  and  150  clerks 
in  79  difl'erent  offices,  collecting  revenue  in  nearly  all  of  the  garrisoned 
towns.  The  organization  was  further  extended,  until  in  January,  1901, 
there  were  about  125  officers  detailed  and  175  clerks  employed  in  120 
offices.  From  that  time  until  the  present  date  the  number  of  officers 
and  offices  has  been  decreased,  but  the  territory  covered  has  been  prac- 
ticall}^  increased.  This  result  has  been  produced  by  the  appointment 
of  provincial  treasurers  as  acting  collectors  of  internal  revenue,  who 
collect  throughout  their  respective  provinces.  The  change  here  noted 
is  in  accordance  with  section  9  of  act  No.  83,  which  provides  that  the 
provincial  treasurer  ' '  shall  act  as  collector  of  internal  revenue  for  the 
province,  and  as  such  shall  report  to  the  collector  of  internal  revenue 
for  the  islands  and  shall  make  such  settlements  and  deposits  as  are 
now  required  by  law."  Regulations  respecting  these  taxes  and  the 
disposition  of  the  funds  collected  are  provided  in  section  9  of  act 
No.  133. 

The  collections  throughout  the  islands  show  a  material  increase  over 
the  collections  for  the  previous  year  on  account  of  the  extension  of 
the  field  covered  and  also  the  increase  of  business  at  the  trade  centers. 
This  is  particularly  true  of  the  city  of  Manila,  where  the  collections 
for  the  past  fiscal  year  show  a  total  increase  of  over  28  per  cent. 

At  this  date,  October  1, 1901,  owing  to  the  organization  of  provinces, 
only  the  following  internal-revenue  officers  remain  on  duty,  collecting 
revenues  in  the  districts  set  opposite  their  respective  names: 


Town. 


Province. 


Lieut.  Parker  Hitt 

W.  T.  Vaughn 

Lieut.  G.  L.  Townsend 

Lieut.  Abraham  Loeb 

M.  H.Wilson 

Hamilton  Bowie 

Lieut.  C.  N.  Jones 

C.  A.  Reynolds 

C.  H.  Danforth 

Lieut.  L.  M.  Little,  U.  S.  M.  C 

Lieut.  W.  H.  Clifford,  U.  S.  M.  C... 

R.  M.  Corwine 

Capt.  C.  R.  Croxton 

Capt.  Samuel  Seay,  jr 


Baler 

Santa  Cruz  . 

Guinan 

Catbalogan . 
Calbayog . . . 

Dapitan 

Davao 

Zamboanga 

Mati 

Isabela 

Pollok 

Jolo 

Bongao 

Siassi 


Principe  (stamp  sales). 

Laguna. 

Samar. 

Do. 

Do. 
Mindanao. 

Do. 

Do. 

Do. 
Basilan. 
Mindanao. 
Jolo. 
Bongao. 
Siassi. 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903. 


249 


The  work  of  collecting  internal  revenue  in  the  city  of  Manila  was 
turned  over  to  the  city  assessor  and  collector  on  August  7,  in  accord- 
ance with  the  terms  of  the  Manila  charter.  Since  that  time  the  acting 
collector  of  internal  revenue  has  been  furnishing  stamps  to  the  various 
provincial  treasurers  and  revenue  officers,  and  has  been  receiving 
collections  for  forestry  payments  in  the  city  of  Manila  and  adminis- 
tering the  revenue  offices  in  the  unorganized  provinces.  As  these 
duties  are  in  connection  with  the  work  of  the  city  assessor  and  col- 
lector, no  expense  is  entailed  on  the  insular  government. 

It  is  impracticable,  owing  to  the  nonreceipt  of  reports  from  all 
provincial  collectors,  to  give  exact  figures,  but  the  following  state- 
ment shows  the  approximate  collections  from  the  different  departments 
up  to  October  1,  with  the  approximate  cost  of  collection  and  percent- 
age of  expense  to  collections  throughout  the  islands: 

Statement  of  collections  and  expenses  of  internal-revenue  department  from  Jidy  1,  1900,  to 
October  1,  1901  ( United  States  currency). 

TThis  statement  does  not  include  sale  of  certificates  by  registration  officers  nor  disbursements  by 
disbursing  quartermaster  for  civil  bureaus  for  this  department.] 


Department. 


Northern  Luzon... 
Southern  Luzon . . . 

Vi.sayas 

Mindanao  and  Jolo 
Manila 

Total 


Per  cent  of 

Collections. 

E.xpenses. 

expenses 
to  collec- 
tions. 

8185,011.20 

SIO, 954. 51 

5.92 

105,727.38 

9, 221. 08 

8.722 

114,395.305 

6,588.37 

6.76 

14, 009. 75 

1, 587. 95 

11.32 

617, 665. 33 

31,735.265 

5.1378 

1,036,808.965 

60, 087. 175 

5.8 

The  internal-revenue  work  in  the  Department  of  Northern  Luzon, 
under  the  able  supervision  of  Maj.  C.  D.  Cowles,  Seventeenth  United 
States  Infantry,  prior  to  the  appointment  of  provincial  treasurers 
was  more  nearly  complete  than  that  in  any  other  department.  This 
was  due,  first,  to  the  ability  and  industry  of  Major  Cowles  and, 
second,  to  the  pacific  condition  of  the  territory  in  question.  Collec- 
tions were  made  in  225  towns  for  almost  the  entire  period  indicated. 
The  only  territory  not  covered  was  the  provinces  of  Bontoc,  Infanta, 
and  the  island  of  Polillo,  and  this  territory,  if  completely  covered, 
would  not  yield  enough  revenue  to  pay  the  expenses  of  collection. 
Officers  detailed  in  this  bureau  were,  wherever  possible,  relieved  from 
other  duties  and  were  assisted  by  local,  district,  and  department  com- 
manders wherever  such  assistance  was  called  for. 

The  reports  from  collecting  officers  were  complete  and  timely,  and 
showed  efforts  to  carry  out  fully  the  intent  of  the  laws  and  orders  relat- 
ing to  the  collection  of  internal  revenue.  On  October  1  there  were  no 
revenue  officers  remaining  on  duty  in  the  Department  of  Northern 


250  REPORTS    OF    TIIK    CIVIL    (lOVERNMENT 

Luzon,  the  supervisor  being  relieved  aud  the  office  at  Solano,  Nueva 
Visca^'a,  being  closed  by  order  of  the  department  commander. 

Owino-  to  the  conditions  which  existed  in  the  Department  of  South- 
ern Luzon  it  was  impossible  to  complete  an  organization  which  could 
successfull_y  carry  on  the  collection  of  internal  revenue  throughout  the 
department.  Capt.  A.  L.  Parmenter,  Twenty-first  United  States 
Infantry,  department  supervisor,  faithfully  endeavored  to  perfect  the 
organization,  but,  owing  to  his  numerous  duties,  was  not  able  to  give 
his  entire  attention  to  the  work.  The  unpacified  condition  of  the  inhabi- 
tants and  the  constant  change  of  officers  which  was  necessitated  by  the 
withdrawal  of  volunteer  regiments,  the  changes  of  stations  of  other 
troops,  and  the  lack  of  officers  for  detail  for  this  work  proved  injurious 
to  the  organization. 

The  reports,  which  are  incomplete,  show  the  i-evenue  collected  in 
135  towns  throughout  the  department.  Local  and  district  commanders 
in  this  department  interfered  in  several  instances  with  the  work  of 
the  officers  endeavoring  to  collect  revenue  and  at  the  same  time  per- 
form other  duties  by  increasing  such  other  duties  to  such  an  extent 
that  the  officers  were  unable  to  attend  to  their  revenue  work,  and  thus 
the  taxes  were  uncollected,  reports  were  not  submitted,  and  the  officer 
himself  was  relieved  or  his  station  changed  with  practically  nothing 
done.  Many  officers  in  being  relieved  carried  away  the  entire  records 
of  their  offices,  including  the  orders  and  instructions  relating  to  the 
work,  and  many  considered  their  internal-revenue  work  as  not  of 
sufficient  importance  to  call  for  exertion,  and  this  in  the  face  of  the 
fact  that  in  some  instances  within  the  limits  of  their  collection  dis- 
tricts insurgent  revenue  collectors  were  collecting  revenue  for  the 
furtherance  of  the  insurrection.  At  this  date  the  supervisor  of  internal 
revenue  for  this  department  has  been  relieved  from  duty,  and  the  only 
revenue  office  remaining  is  that  of  the  district  of  Laguna,  that  being 
the  only  province  having  no  provincial  treasurer. 

The  internal-revenue  work  in  the  Department  of  the  Visayas  was 
retarded  b}^  the  changes  of  supervisors  during  the  year,  officers  being 
relieved  as  soon  as  the}^  had  sufficient  experience  to  supervise  the 
work.  The  organization  in  the  island  of  Panay  was  good,  and  the 
collections  there  made  show  zeal  on  the  part  of  the  officers  detailed. 
The  island  of  Negros,  having  its  own  government  under  the  provisions 
of  General  Orders,  No.  30,  M.  G.  O.,  July  22,  1899,  was  not  called 
upon  to  furnish  revenue  for  the  General  Government  except  from  the 
issue  of  certificates  of  registration  and  the  sale  of  internal-revenue 
stamps.  Capt.  F.  C.  Prescott,  Forty-third  Infantry,  U.  S.  V.,  had 
about  perfected  the  organization  in  the  islands  of  Leyte  and  Cebu 
when  these  provinces  passed  under  the  provisions  of  the  provincial 
code. 

The  supervisor  of  internal  revenue  for  this  department  was  relieved 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  251 

some  months  ago,  and  the  only  territory  in  which  collectors  of  internal 
revenue  still  remain  is  the  island  of  Samar,  which  has  been  in  such  a 
turbulent  state  that  few  collections  could  be  made.  These  collectors 
are  now  acting  under  the  direct  supervision  of  the  central  office,  and 
the  country  is  in  a  very  poor  condition  for  any  extensive  work  by 
these  officers. 

Eliminating  the  Sulu  Archipelago,  where  no  internal  revenue  has 
been  collected  except  from  the  sale  of  internal-revenue  stamps,  the 
Department  of  Mindanao  and  Jolo  shows  an  unorganized,  ineffective 
attempt  to  carry  out  the  internal-revenue  laws.  This  was  caused,  first, 
by  the  fact  that  the  department  commander  believed  that  such  taxes 
should  not  be  levied  under  existing  conditions  and  so  ordered  affairs 
that  no  extension  of  work  could  be  made,  and,  second,  from  the  lack 
of  a  supervisor  interested  in  the  work.  In  some  towns  in  Mindanao 
collections  were  made;  in  others  some  industries  were  taxed  and  other 
industries  were  allowed  to  escape  taxation.  This  resulted  in  unequal 
taxation,  which  ought  to  have  been  avoided.  Either  the  taxes  should 
have  been  collected  according  to  the  laws  or  they  should  have  been 
entirely  suspended  pending  a  condition  of  affairs  which  would  justify 
their  collection.  Many  Chinese  merchants  in  Mindanao  are  making 
large  profits  and  pay  no  taxes  whatever,  while  others,  who  have  been 
in  business  for  longer  periods,  are  compelled  to  pay  industrial  taxes, 
such  merchants  doing  business  in  the  same  town  and  under  like 
conditions. 

Reports  from  subcollectors  from  this  department  show  that  under 
these  conditions  no  satisfactory  work  could  be  done,  but  it  is  believed 
that  with  the  organization  of  the  province  under  the  provincial  code 
conditions  will  change  and  that  taxation  will  be  equal  for  all,  and  con- 
siderable revenne  will  be  collected. 

The  collections  in  the  city  of  Manila,  by  quarters  up  to  the  date  of 
transfer  to  the  municipal  government  on  August  7,  are  shown  in  Appen- 
dix Z,  under  the  various  subheads  which  are  hereinafter  mentioned. 

The  collections  were  materially  increased,  both  by  the  efforts  of  the 
assistant  collector,  Lieut.  Ellis  Cromwell,  Thirty-ninth  Infantry, 
U.  S.  v.,  and  by  the  increase  of  business  and  value  of  property. 
Included  in  this  statement,  under  "Industrial  taxes,"  are  the  collec- 
tions for  the  years  1899,  1900,  and  1901  of  the  largest  corporation  in 
the  Philippine  Islands,  the  Compania  General  do  Tobacos  de  Filipias, 
of  which  specific  mention  will  be  hereinafter  made. 

The  industrial  taxes  for  the  fiscal  year  1901  show  an  aggregate  of 
$292,S0«.32.  This  is  an  increase  of  21  per  cent  over  the  industrial 
taxes  for  the  entire  fiscal  year  1900,  notwithstanding  the  abolition  of 
all  surtaxes  under  the  provisions  of  General  Orders,  No.  53,  M.  G.  O., 
April  17, 1900,  thus  showing  that  there  would  have  been  a  real  increase 
of  about  1.5  per  cent  in  the  collections  if  the  surtaxes  had  been  con- 
tinued. 


^  tl  w 


KKroUT^^    OF    THE    CIVIL    GOVERNMENT 


There  were  in  force  July  1,  1900,  9,0Ti  industriul  licenses.  After 
that  time  and  prior  to  June  30,  1901,  there  were  issued  7,583  and 
canceled  5,380,  le:ivini>-  extant  June  30,  190  L,  11,3:34  industrial  licenses. 

Following-  the  custom  of  Spanish  administration,  insurance  com- 
panies were  permitted,  in  submitting-  their  l)u'  aiice  sheets,  to  carry- 
forward the  balance  of  their  losses  from  one  year  to  the  next,  until 
such  losses  were  offset  by  profits.  But  as  no  written  decision  author- 
izing this  method  could  be  found,  either  in  the  office  of  the  collector 
of  internal  revenue  or  in  the  bureau  of  archives,  the  matter  was  sul)- 
mitted  to  the  military  secretary  and  a  decision  rendered  "  that  each 
year's  profits  must  be  taxed  separately."  This  decision  was  held  to 
cover  all  taxes  after  the  advent  of  the  Americans,  and  resettlements 
upon  this  basis  were  made  with  agents  of  all  insurance  companies 
doing'  business  in  the  islands. 

The  taxes  of  the  Compania  General  de  Tobacos  de  Filipinas,  the 
largest  corporation  doing  business  in  the  Philippine  Islands,  were  con- 
sidered as  being  collected  upon  a  wrong  basis  under  the  industrial  tax 
regulations,  and  this  company  was  advised  in  Ma}^,  1900,  that  it  must 
pay  its  taxes  on  its  dividends  and  not,  as  had  been  customary  under 
the  Spanish  administration,  as  a  private  firm.  The  company  replied, 
stating  that  it  believed  it  to  be  unjust  for  them  to  pay  on  their  entire 
dividends,  as  much  of  its  capital  was  invested  in  Europe.  This  was 
found,  however,  to  be  untrue,  and,  on  the  representation  to  the  mili- 
tary secretar}^  of  these  facts,  this  company  was  called  upon  to  pay  as 
a  corporation,  but  to  be  credited  with  all  taxes  paid  as  a  private  firm 
since  the  advent  of  the  Americans.  This  settlement  was  not  consum- 
mated until  April,  1901,  on  account  of  the  various  records  that  had 
necessarily  to  be  prepared.  The  company  presented  its  statements, 
showing  the  total  taxes  to  be  paid  to  the  Government  on  the  dividends 
declared  since  August  13,  1898,  to  the  amount  of  $46,991.10,  from 
which  there  was  deducted  the  taxes  paid  as  a  private  firm  in  Manila, 
or  $6,798.13,  and  settlement  was  made  with  the  compau}^  accordingly, 
but  it  was  authorized  to  present  a  claim  for  refund  of  all  industrial 
taxes  actuall}^  paid  by  it  for  the  conduct  of  its  business  in  the  provinces. 
This  was  estimated  by  the  company  to  be  less  than  $2,500,  but  the 
claim  therefor  has  not  yet  been  presented.  This  settlement  covers  the 
dividends  of  the  company  for  the  3^ears  1898,  1899,  and  1900. 

This  year  has  been  one  of  unusual  industrial  activity,  large  numbers 
of  industries  having  been  started^  and  large  increases  in  the  amounts  of 
the  income  tax  on  salaries,  etc. ,  due  to  the  increase  in  salaries  and  num- 
ber of  employees,  are  noted.  The  item  of  delinquent  taxes  has  been 
practically  eliminated  during  the  j'ear,  and  the  only  delinquents  now 
are  those  taxpayers  whom  it  has  not  been  possible  to  find,  in  order 
properly  to  assess  the  taxes. 

The  urbana  taxes  for  the  twelve  months  ending  June   30,  1901, 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  253 

amounted  to  $73,885. 69i,  an  increase  of  18  per  cent  over  the  collec- 
tions for  the  fiscal  year  1900,  notwithstanding  the  reduction  caused  by 
the  abolition  of  the  surtaxes,  amounting-  to  13. 3  per  cent.  This  increase 
is  caused  l^y  the  rebuilding-  of  the  properties  burned  in  1898  and  1899, 
which  have  completed  their  year  of  exemption  under  the  law,  and  are 
now  paying  taxes  with  increased  rents  throughout  the  city.  In  this 
department  400  fines,  to  the  amount  of  $3,100.50,  have  been  levied  and 
collected  under  the  law  on  account  of  false  declarations,  and  ia  all 
cases  have  been  paid  without  compulsion.  At  the  turning  over  of  the 
internal-revenue  oflSce  to  the  city  assessor  and  collector  on  August  7, 
all  urbana  taxes  due  since  August  13,  1898,  had  been  paid,  and  there 
are  thus  no  delinquents. 

The  following  is  a  brief  statement  of  the  stamp  accounts  of  the 
internal-revenue  ofiice,  in  Mexican  currency,  for  the  year  ending  June 
30,  1901: 

Revenue  stamps  on  hand  July  1,  1900 $690,  635. 47 

Received  from  printers 822, 981. 45 

Received  from  officers 45, 172. 54 

Total $1, 558,  789. 46 

Sales 186,  864.  38 

Transferred  to  officers 310,  810.  03 

497, 674. 41 

Balance  on  hand  June  30,  1901 1, 061, 115. 05 

By  referring  to  Appendix  Z  it  will  be  seen  that  the  stamp  sales  in 
Manila  show  an  increase  of  43  per  cent  over  the  sales  for  the  fiscal 
year  1900.  Attempts  have  been  made  to  extend  the  use  of  internal- 
revenue  stamps  as  provided  by  law,  and  during  the  year  126  fines  for 
the  nonuse  of  stamps  have  been  levied  and  collected,  amounting  to 
$2,804.50  in  Mexican  currency. 

On  an  examination  of  the  Banco  Espanol-Filipino  it  was  discovered 
that  several  new  corporations,  then  recently  organized,  had  omitted  to 
place  documentary  stamps  on  their  certificates  of  stock,  as  provided  in 
the  regulations,  and  had  advanced  such  stock  as  collateral  security  to 
the  bank  for  loans.  As  the  absence  of  these  stamps  invalidated  the 
stock  the  bank  took  immediate  measures  to  protect  itself,  and  each 
corporation  was  advised  that  unless  inunediate  steps  were  taken  to 
place  the  proper  stamps  on  all  their  issues  of  stock  the  fine  applicable 
in  such  cases  would  be  levied.  This  resulted  in  the  sale  of  upward 
of  $6,000  worth  of  Internal-revenue  stamps,  and  since  that  time  inspect- 
ors have  failed  to  find  any  certificates  n(it  properly  stamped. 

The  sale  of  certificates  of  registration  during  the  past  fiscal  year  was 
a  continuation  of  the  work  begun  in  January,  1900,  as  no  new  certifi- 
cates were  authorized  for  the  calendar  year  1901,  and  under  the  pro- 
visions of  General  Orders,  No.  2,  M.  G.  O.,  January  2,  1901,  the 

23181—04 17 


254  REPOKTS    OF    THE    CIVIL    OOVERNMENT 

certificates  of  this  series  held  good  until  further  let^islation.  This  has 
proven  very  satisfactory,  inasmuch  as  a  new  issue  of  certificates  for 
the  calendaryear  1901  has,  b}'  recent  lej^islation  of  the  commission, 
been  authorized,  and  the  revenue  derived  from  the  sale  of  these  cer- 
tificates will  materially  aid  both  municipal  and  provincial  governments. 
The  receipts  from  forestry  products  in  Manila  alone  for  the  year 
ending  June  30,  1901,  were  $54,170.03,  but  this  amount  includes  a  cer- 
tain quantity  of  such  products  obtained  from  nearly  all  parts  of  the 
islands. 

THE   PUBLIC   RECORDS. 

B}"  reference  to  the  documents  contained  in  the  archives  formerly  be- 
longing to  the  Spanish  Government  it  has  been  possible  to  settle  all  ques- 
tions and  claims  that  have  hitherto  arisen  bearing  on  the  recognition 
of  rights  acquired  under  Spanish  legislation.  Aside  from  their  impor- 
tance in  this  respect,  the  documents  referred  to  contain  the  history  of 
somewhat  more  than  two  centuries  of  Spanish  rule  in  these  islands, 
and  they  are  a  source  of  information  necessary  in  the  formation  and 
administration  of  laws  relating  to  the  Filipino  people.  In  order  to 
their  better  preservation  and  use,  it  was  thought  proper  to  bring 
together,  within  the  limits  of  the  intendencia  building,  all  of  the  rec- 
ords and  other  papers  formerly  belonging  to  the  several  offices  of  the 
Spanish  Government  kept  in  many  buildings  throughout  the  city. 

The  destruction  and  loss  of  many  records  and  documents,  resulting 
in  want  of  order  in  the  arrangement  and  preservation  of  those  remain- 
ing, were  caused  in  part  by  the  fact  that  the  buildings  where  they  were 
formerly  kept  were  occupied,  although  for  only  a  short  time,  by  sol- 
diers who,  not  knowing  their  value,  used  them  for  fuel  in  the  prepara- 
tion of  their  food  or  threw  them  into  the  streets.  The  arrangement 
and  classilication  of  the  existing  records  and  papers  have  required  much 
painstaking  and  laborious  effort  on  the  part  of  the  employees,  who 
have  been  able  to  make  progress  in  their  task  by  reason  of  their  famil- 
iarity with  the  organization  of  the  different  bureaus  of  the  Spanish 
Government,  acquired  by  many  years  in  the  Spanish  service,  and  by 
their  familiarity  with  the  subjects  treated  in  the  records. 

This  great  collection  of  records  is  made  up  of  ro3ral  orders,  emanat- 
ing from  the  Madrid  Government,  covering  a  period  of  between  two 
and  three  centuries. 

It  embraces  papers  referring  to  all  subjects  connected  with  the 
Spanish  administration  and  all  institutions  affected  by  Spanish  legisla- 
tion. It  embraces  papers  relating  to  the  general  administration  of 
the  archipelago,  the  municipalities,  civil  and  religious  corporations, 
colleges,  hospitals,  pious  foundations,  banks  and  mercantile  corpora- 
tions, consulates,  printing  offices,  colonies,  penal  institutions,  Chinese 
immigration,  patents  and  trade-marks,  personal  records  of  officials, 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  255 

public  charit}^  and  health,  public  instruction,  post  and  telegraph,  mar 
ket-license  contiacts,  cock  pits,  weights  and  measures,  ferries,  opium, 
construction  and  repair  of  State,  provincial,  and  municipal  buildings; 
bridges,  wagon  roads,  railroads,  and  tramways;  industrial,  urbana, 
cedula,  and  Chinese  head  taxes;  customs  duties,  revenue  from  stamped 
paper,  revenue  from  vino  and  tobacco  when  these  articles  were  monopo- 
lies of  the  State;  sale  of  State  lands,  security  fund,  and  various  other 
matters. 

Among  the  papers  of  the  archives  are  to  be  found  12,873  records  of 
transfers  of  real  estate,  which  are  constantly  being  searched  to  satisfy 
the  many  demands  received  b}"  the  head  of  this  bureau  from  private 
parties.  In  the  records  of  contracts  there  are  receipts  for  deposits 
made  b}^  contractors  on  account  of  bonds  and  bids  on  contracts,  that 
amount  to  the  sum  of  $97,433.75,  for  the  return  of  which  the  parties 
interested  filed  claims  with  the  Spanish  Government.  The  papers 
relating  to  public  works  contain  a  large  number  of  building  plans,  the 
majority  of  which  were  not  carried  out  on  account  of  the  war.  The 
archives  contain,  furthermore,  the  books  and  accounts  of  the  treasury, 
and  those  relating  to  the  public  revenues  and  expenses  being  especi- 
ally important  for  the  reason  that  the  insular  and  Spanish  govern- 
ments will  find  in  them  a  verification  of  many  matters  which  they  may 
need  to  have  authenticated;  also  the  records  of  the  extraordinary  and 
deficiency  appropriations,  and  books  relating  to  the  surety  fund,  the 
money  of  which  was  invested  in  the  last  issue  of  Government  bonds, 
floated  for  the  purpose  of  paying  the  expenses  of  the  war.  There  are 
also  many  records  relating  to  accounts,  defalcations,  and  malversation 
of  public  funds. 

It  is  to  be  regretted  that  the  records  relating  to  lands  and  buildings 
which  were  used  by  the  war  department  during  the  time  of  the 
Spanish  Government  are  not  at  hand.  They  were  kept  in  the  ofiices 
of  the  war  department  and  were  sent  to  Spain,  together  with  all  the 
records  belonging  to  the  army,  when  it  was  repatriated  after  the  war. 
This  deficiency  has  led  to  much  diflicult}^  in  determining  which  are 
the  military  buildings  and  in  drawing  a  proper  line  between  the  claims 
of  the  military  and  the  civil  governments.  The  records  relating  to  the 
retirement  and  pensions  of  former  emploj^ees  of  the  Spanish  Govern- 
ment and  to  the  pensions  of  widows  and  orphans  of  such  emplo3'^ees 
were  also  sent  to  Spain  by  the  Spanish  board  of  liquidation,  which 
was  organized  here  after  the  cession  of  these  islands  to  the  United 
States. 

At  present  the  emplo^^ccs  of  the  bureau  of  archives  are  engaged  in 
arranging  papers  from  the  former  auditor's  oflicc  of  these  islands 
and  those  belonging  to  the  civil  government  of  Manila  under  Spanish 
rule.  The  latter  were  found  in  a  building  on  Anda  street,  where  they 
were  scattered  about  in  great  confusion.     Within  a  few  days  all  of 


25(5  REPORTS    OF    THE    CIVIL    GOVERNMENT^ 

tho  vooords  of  the  post-office  relating  to  the  period  of  Spanish  domin 
ion  will  be  transferred  to  the  archives.  There  are  still  lacking  here 
the  records  of  the  custom-house,  although  orders  for  the  transfer  of 
these  documents  to  the  central  archives  were  issued  by  General  Mac- 
Arthur,  late  militar}'^  governor  of  the  Philippines.  In  the  archives 
are  found  also  large  collections  of  laws,  royal  decrees,  regulations,  and 
other  acts  of  the  Spanish  Government,  gathered  in  the  Gazette  and 
man}'  other  printed  volumes,  which  are  constantly  consulted,  for  the 
reason  that  they  contain  many  laws  which  will  continue  to  be  in  force 
until  others  as  substitutes  for  them  shall  have  been  enacted  by  the 
existing  government. 

Besides  the  public  records  kept  in  Manila,  the  provincial  capitals 
and  many  of  the  other  towns  formerly  contained  important  documents; 
but  an  investigation  recently  made  shows  that  they  have  nearly  all 
disappeared,  destroyed  by  order  of  Spanish  officials,  by  the  insurgents, 
or  as  an  unavoidable  consequence  of  war.  A  brief  statement  of  the 
results  of  this  investigation  is  presented  in  Appendix  AA. 

PUBLIC   PRINTING. 

The  absence  of  normal  competition  in  the  business  of  printing  in 
Manila  and  the  consequent  exorbitant  prices  which  the  Government 
has  paid  for  work  done  provoked  inquiries  as  to  the  possibility  of 
securing  more  economical  and  more  efficient  means  for  providing  the 
printing  needed  in  connection  with  the  office  of  the  civil  government. 
It  was  found,  by  an  examination  of  the  accounts  in  the  auditor's  office, 
that  the  annual  cost  of  public  printing  was  about  $225,000  in  money 
of  the  United  States,  and  that  with  the  extension  of  civil  government 
the  amount  of  printing  required  will  probably  be  somewhat  increased. 
With  this  prospect  in  view  the  commission  requested  the  purchase  in 
the  United  States  of  adequate  machinery  and  supplies  for  a  printing 
plant  to  be  erected  in  the  city  of  Manila.  This  plant  has  been  pur- 
chased under  the  direction  of  the  chief  of  the  Division  of  Insular  Affairs 
and  -will  arrive  in  Manila  about  the  15th  of  November. 

It  is  proposed  to  make  use  of  the  facilities  presented  in  the  public 
printing  office  to  supplement  the  work  of  the  trade  school  in  training 
Filipinos  so  that  they  may  be  profitably  employed  in  cooperating  with 
American  workmen  in  the  different  departments  under  the  supervision 
of  the  public  printer,  since  the  business  of  printing  is  an  occupation 
for  which  the  Filipinos,  by  reason  of  their  mechanical  aptitude  and 
artistic  sense,  appear  to  be  well  fitted. 

BUREAU   OF  ARCHITECTURE   AND   CONSTRUCTION. 

Through  neglect  and  the  necessary  destruction  of  a  period  of  war,  the 
public  buildings  in  many  of  the  cities  have  become  unfit  for  occupancy  or 
been  completely  destroyed.     There  is  thus  imposed  upo&  the  Govern 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903,  257 

ment  a  large  amount  of  work  of  reconstruction.  New  building-s  have 
become  necessary  l>y  the  extension  of  some  of  the  functions  of  the 
civil  government,  particularly  in  the  department  of  public  instruction. 
In  order  to  provide  that  the  work  here  involved  ma}"  be  properh"  done, 
the  civil  government  has  engaged  Mr.  Edgar  K.  Bourne  to  be  the 
chief  of  a  bureau  of  architecture  and  construction  of  public  buildings. 
The  various  schoolhouses  and  other  public  buildings  which  it  becomes 
necessarj'  to  construct  from  time  to  time  will  l)o  built  under  his 
supervision. 

ORGANIZATION   OF   PUBLIC   INSTRUCTION. 

Prior  to  the  date  of  the  commission's  last  preceding  report,  the  work 
done  in  establishing  and  carrj'ing  on  public  schools  was  without  sys- 
tematic organization.  cThe  first  important  step  forward  was  the  enact- 
ment of  a  law  (No.  74)  establishing  a  department  or  bureau  of  public 
instruction,  which  should  have  jurisdiction  over  all  public  schools  in 
the  archipelago.  This  law,  with  its  amendments,  provides  for  1  gen- 
eral superintendent  of  public  instruction,  18  division  superintendents, 
and  such  a  number  of  deputy"  division  superintendents  as  the  secretary 
of  public  instruction  may  consider  desirable,  but  the  number  shall  not 
exceed  in  an}"  division  the  number  of  provinces  in  that  division. 
^  It  was  proposed  Ijy  law  to  establish  for  the  schools  a  centralized 
organization,  and  in  keeping  with  this  design  the  general  superintend- 
ent w"as  given  extensive  powers.  He  was  authorized  to  establish 
schools;  to  appoint  division  superintendents,  teachers,  and  clerks 
authorized  by  law,  and  prescribe  the  duties  of  such  teachers  and 
clerks;  to  fix  salaries  within  the  limits  established  by  law;  to  establish 
curricula  for  primary,  secondary,  and  other  public  schools;  to  divide 
the  islands  into  school  divisions;  to  fix  the  relation  between  the  prin- 
cipal teacher  and  other  teachers,  and  to  perform  certain  other  functions 
essential  to  the  effective  administration  and  control  of  the  schools. 
-^The  law  establishing  the  system  of  public  instruction  provided,  also, 
that  as  soon  as  practicable  the  English  language  would  be  made  the 
basis  of  all  public  instruction,  and  the  general  superintendent  was 
authorized  to  obtain  from  the  United  States  1,000  trained  teachers  at 
monthly  salaries  of  not  less  than  $75  and  not  more  than  $125,  the  exact 
salary  of  each  teacher  to  be  fixed  by  the  general  superintendent.  "^ 
superior  advisory  board  was  created,  to  be  composed  of  the  general 
superintendent  and  1  meml)crs  to  be  appointed,  in  accordance  with  the 
terms  of  the  law,  by  the  commission,  but  by  the  civil  governor  after 
his  inauguration,  and  in  each  municipality  a  local  school  ])oard  consist- 
ing of  -4  or  6  members',  as  the  division  superintendent  might  determine, 
in  addition  to  the  presidente  or  alcalde  of  the  municipality,  who  should 
be  a  member  ex  officio,  ^ach  pu<>1)lo  was  made  a  school  district,  and 
it  was  made  the  duty  of  the  uumicipal  council  to  make  as  ample  provi- 


258  REPORTS^    OK    TIIK    CIVIL    GOVERNMENT 

sion  as  po.ssi])lo  ])v  lorul  taxation  for  the  support  of  tho  schools  estab- 
lished Avithiii  its  jurisdiction. "^rThis  act  of  organization,  furthermore, 
established  a  trade  school  and  a  normal  school  in  Manihi  and  iin  agri- 
cultural st-hool  in  the  island  of  Negros.  The  attitude  which  the  schools 
should  assume  toward  the  teaching  of  religion  was  fixed  by  the  adop- 
tion of  the  so-called  Faribault  plan.  This  was  set  forth  in  section  16, 
in  the  following  language: 

No  teacher  or  other  person  shall  teach  or  criticise  the  doctrines  of 
any  church,  religious  sect  or  denomination,  or  shall  attempt  to  influ- 
ence the  pupils  for  or  against  any  church  or  religious  sect  in  any  pub- 
lic .school  established  under  this  act.  If  any  teacher  shall  intentionally 
violate  this  section,  he  or  she  shall,  after  due  hearing,  be  dismissed 
from  public  service. 

Provided^  however^  that  it  shall  be  lawful  for  the  priest  or  minister 
of  any  church  established  in  the  pueblo  where  a  public  school  is  situ- 
ated, either  in  person  or  by  a  designated  teacher  of  religion,  to  teach 
religion  for  one-half  an  hour  thi-ee  times  a  week  in  the  school  build- 
ings to  those  public-school  pupils  whose  parents  or  guardians  desire  it 
and  express  their  desire  therefor  in  writing  filed  with  the  principal 
teacher  of  the  school,  to  be  forwarded  to  the  division  superintendent, 
who  shall  fix  the  hours  and  rooms  for  such  teaching.  But  no  public- 
school  teacher  shall  either  conduct  religious  exercises,  or  teach  religion, 
or  act  as  a  designated  religious  teacher  in  the  school  building  under 
the  foregoing  authority,  and  no  pupil  shall  be  required  by  any  public- 
school  teacher  to  attend  and  receive  religious  instruction  herein  per- 
mitted. Should  the  opportunity  thus  given  to  teach  religion  be  used 
by  the  priest,  minister,  or  religious  teacher  for  the  purpose  of  arous- 
ing disloyalty  to  the  United  States,  or  of  discouraging  the  attendance 
of  pupils  at  such  public  school,  of  creating  a  disturbance  of  public 
order,  or  of  interfering  with  the  discipline  of  the  school,  the  division 
superintendent,  subject  to  the  approval  of  the  general  superintendent 
of  public  instruction,  maj^,  after  due  investigation  and  hearing,  forbid 
such  offending  priest,  minister,  or  religious  teacher  from  entering  the 
public-school  building  thereafter. 

Down  to  the  present  time  no  priest  or  other  religious  teacher  has 
asked  for  the  use  of  an}-  schoolhouse  for  the  purpose  of  teaching 
religion  in  accordance  with  the  terms  of  this  section. 

The  extent  and  natural  distribution  of  the  territory  of  the  archipelago 
made  it  expedient  to  provide  for  a  more  immediate  supervision  than 
could  be  rendered  by  the  general  superintendent.  To  this  end  the 
territory  has  been  divided  into  eighteen  divisions,  over  each  of  which 
is  appointed  a  division  superintendent,  exercising  such  powers  as  are 
prescribed  b}^  section  9  of  act  No.  74. 

TRANSPORTATION,    RECEPTION,  AND   ASSIGNMENT   OF   TEACHERS. 

The  transportation,  reception,  and  distribution  of  the  teachers  who 
left  San  Francisco  in  small  companies  in  the  early  part  of  the  year 
presented  no  difficulties  and  called  for  no  extraordinary  action  on  the 
part  of  the  authorities  in  Manila.     Each  transport  brought  a  few  and 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  259 

quarters  were  readily  found  for  them  while  waiting  for  vessels  to  take 
them  to  their  destination.  In  a  single  instance,  when  about  60  arrived 
in  Manila  at  once,  it  was  found  necessary  to  give  them  quarters  in  the 
rooms  of  the  Escuela  Municipal,  but  when  the  question  of  transport- 
ing 600  teachers  from  San  Francisco  to  Manila  arose  it  was  decided  to 
ask  the  Secretary  of  War  to  set  apart  one  transport,  or  more  if  needed, 
for  the  exclusive  use  of  the  school-teachers.  To  this  request  a  reply, 
dated  May  29,  was  received,  which  stated  that  if  the  strike  interfered 
with  the  work  of  repairing  the  Sherman^  the  Thomas  or  Lawton 
would  be  especially  fitted  in  order  to  accommodate  exclusively  600 
school-teachers,  sailing  on  or  about  July  1.  The  time  of  sailing  was, 
however,  much  later  than  the  date  originally  fixed,  and  the  ship 
entered  the  bay  of  Manila  on  August  21,  but  owing  to  certain  require- 
ments of  the  sanitary  inspector  the  passengers  were  not  allowed  to 
land  until  August  23. 

Anticipating  the  arrival  of  this  large  number  of  persons,  arrange- 
ments had  been  made  to  receive  them  and  to  entertain  them  during  the 
few  days  they  were  expected  to  remain  in  Manila  Ijefore  going  to  the 
towns  to  which  the\^  were  to  be  assigned.  On  inquiry  it  was  found 
that  there  were  no  adequate  accommodations  for  them  in  the  hotels  or 
or  in  any  building  suited  for  the  purpose  in  the  oitj.  It  was  then 
determined  to  provide  quarters  for  them  on  the  exposition  grounds. 
The  central  or  administration  building  was  repaired  and  cleaned  and 
furnished  for  the  accommodation  of  the  women.  Two  of  the  large 
nipajaarracks,  built  for  the  accommodation  of  the  American  soldiers, 
we^e  used  as  quarters  for  the  single  men.  Several  small  nipa  build- 
ings that  had  been  used  as  ofiicers'  quarters  were  turned  over  to  the 
teachers  with  families.  Three  or  four  of  the  other  permanent  build- 
ings were  used  for  difi^erent  purposes;  one  was  repaired  and  used  as 
a  dining  room,  another  was  used  as  quarters  for  families  that  could 
not  be  entertained  in  the  officers'  barracks,  and  still  another  was  used 
as  a  storeroom  for  baggage. 

The  teachers  landed  near  the  Anda  Monument,  at  the  foot  of  Malecon 
Drive,  and  with  their  baggage,  embracing  more  than  2,000  trunks, 
were  transported  to  the  exposition  grounds.  The  landing  was  effected 
without  accident  or  loss  on  the  23d.  A  temporary  kitchen  was  con- 
structed adjoining  the  dining  hall,  and  a  contract  was  made  with  the 
proprietor  of  the  English  Hotel,  who  agreed  to  provide  tablecloths, 
dishes,  and  whatever  else  was  necessary  to  furnish  the  tables,  except 
napkins,  and  also  a  sufiicient  number  of  efficient  cooks  and  waiters, 
and  to  furnish  first-class  food  in  sufficient  quantities  and  to  serve  it  "  in 
the  very  best  manner  possible."  The  meat,  vegetables,  and  fruit  were 
carefully  inspected  eacli  day  and  every  effort  was  rendered  to  make 
the  conditions  of  life  sanitary.     In  his  report,  made  after  a  careful 


2(>0  REPORTS    OF   THE    CIVIL    QOYERNMENT 

inspection  of  the  materials  used,  Dr.  Anderson,  the  physician  in  charge, 
said: 

The  sanitary  condition  of  the  restaurant  quarters  has  been  carefully 
inspected  and  found  to  compare  favoraldy  with  any  hotel  or  restaurant 
in  tb3  city  of  Manila.  I  have  personally  inspected  the  meats,  hsh, 
fruits,  bread,  pastry,  and  vegetables  and  lind  them  of  first  quality, 
pure  and  fresh. 

After  the  first  few  days,  during  which  a  few  of  the  company  suf- 
fered from  troubles  of  the  stomach,  due  to  the  change  from  ship  to 
shore  life  and  to  an  almost  unavoidable  indiscretion  in  new  and 
strange  conditions,  the  health  of  the  teachers  remained  generally  very 
satisfactory.  The  Government  provided  the' services  of  two  phj^si- 
cians.  From  7  p.  m.  to  7  a.  m.  Dr.  E.  T.  Anderson  was  in  constant 
attendance,  and  during  the  day  Dr.  Fitzpatrick,  the  assistant  attend- 
ing physician  and  surgeon,  was  always  on  call. 

When  the  teachers  were  sent  to  their  posts  throughout  the  archi- 
pelago none  was  suffering  from  impaired  health  due  to  the  conditions 
of  residence  in  Manila.  A  few  were  in  poor  condition  physically 
when  they  landed,  and  one,  Mr.  W.  S.  Davis,  died  a  few  weeks  later. 
He  had  been  assigned  to  Moncada,  in  the  province  of  Tarlac,  and  later 
went  to  the  militar}^  hospital  at  Dagupan  for  an  operation  for  appen- 
dicitis. The  case  was,  however,  so  far  advanced  that  no  relief  was 
possible.  He  left  a  wife  and  five  children  under  7  years  of  age.  The 
military  authorities  at  Moncada,  Dagupan,  and  elsewhere,  as  well  as 
the  teachers,  rendered  every  assistance  possible,  and  Mrs.  Davis  and 
the  children  were  brought  to  Manila  to  wait  for  transportation  to  the 
United  States.  In  the  meantime  the  Manila  American,  a  daily  news- 
paper, started  a  subscription,  and  a  sum  amounting  to  somewhat 
more  than  $1,000  in  gold  was  raised  and  presented  to  Mrs.  Davis. 

A  few  of  the  teachers  found  quarters  with  friends  in  the  city.  The 
whole  number  entertained  at  the  exposition  grounds  was  572,  and  the 
majority  of  them  left  for  the  towns  to  which  they  were  assigned  within 
twenty  days  after  their  arrival  in  Manila.  A  few  remained  several 
days  longer,  owing  to  the  difficulty  of  getting  transportation  to  the 
more  isolated  towns.  This  period  was  taken  up  in  securing  proper 
clothing  and  supplies  and  in  visiting  the  schools  in  Manila.  Provision 
for  the  transportation  of  the  teachers  to  their  respective  stations  was 
made  by  the  purchasing  agent  of  the  civil  government  and  the  chief 
quartermaster  of  the  Army.  The  proprietors  of  the  interisland  steam- 
ship lines  received  the  teachers  at  half  rates  and  gave  them  the  best 
accommodations  their  ships  afforded. 

In  assigning  teachers  to  their  work,  careful  attention  was  given  to 
reports  of  the  division  superintendents  who  had  already  visited  their 
divisions,  and  to  the  requests  from  military  oflScers,  presidentes  of  the 
municipalities,  and  other  persons  interested  in  the  welfare  of  the  schools. 


OF    THE    PHILIPPIISrE    ISLANDS,    1900-1903.  261 

In  determining  the  towns  to  which  Engh'sh  teachers  should  be  sent,  it 
was  found  desirable  to  favor  the  larger  garrisoned  towns  and  those 
manifesting  their  loyalt}-  b}-^  their  peaceful  condition.  The  question 
as  to  the  possibility  of  finding  quarters  for  women  teachers  had  always 
to  be  taken  into  consideration,  and  sometimes  the  fact  of  the  presence 
or  the  absence  of  other  American  women  in  towns  proposed  was  deci- 
sive. The  difficulty  of  securing,  in  many  places,  suitable  food  was  one 
of  the  influences  that  led  the  commission  to  establish  at  Manila  a 
general  supplj^  store  from  which  teachers  and  other  civil  emplo3^ees 
in  the  provinces  could  make  purchases  of  food  at  reasonable  rates  and 
have  it  transported  to  them  by  whatever  means  were  available.  (See 
act  No.  242.)  The  married  couples,  where  both  were  qualified  teachers, 
were  usually  assigned  to  towns  requiring  but  one  man  and  one  woman 
teacher,  and  ordinaril}^  the  women  were  sent  in  twos  for  companion- 
ship and  mutual  assistance. 

The  preferences  of  teachers  as  to  place  of  assignment  and  com- 
panions were  asked  for  and  so  far  as  possible  intimate  friends  were 
assigned  to  the  same  town  or  vicinity,  and  in  cases  where  relatives  or 
friends  were  in  the  military  or  civil  service  due  consideration  was 
given  to  this  fact.  The  selection  and  assignment  of  teachers  in  several 
provinces  were  left  largely  to  the  division  superintendents.  It  was 
thought  that  their  knowledge  of  the  people  and  intimate  acquaintance 
with  the  actual  conditions  in  the  respective  localities  would  enable  them 
to  make  judicious  selections  of  persons  to  fit  the  conditions,  and  to 
assign  them  in  such  a  way  that  with  the  given  force  the  most  effective 
work  could  be  done.  In  Negros,  owing  to  the  changes  that  were 
making  in  the  stations  of  troops,  it  was  not  possible  to  fix  the  exact 
assignment  of  the  several  teachers  until  this  movement  was  completed. 

MANILA    PRIMARY   SCHOOLS. 

At  the  end  of  the  last  school  year  the  public  schools  of  Manila  closed 
with  4,460  pupils  in  attendance.  This  was  the  largest  number  that  had 
been  in  attendance  in  the  public  schools  since  their  reestablishment 
under  American  authority.  Shortly  before  they  were  reopened,  on 
June  16,  1901,  a  circular  was  issued  announcing  the  opening  of  the 
schools.  This  circular  was  printed  in  English,  Spanish,  and  Tagalog, 
and  10,000  copies  were  distributed  by  the  Filipino  police.  The  pupils 
reassembled  gradually,  and  by  the  30th  of  June  there  were  3,490 
enrolled.  At  the  end  of  July  there  were  5,123  in  attendance.  This 
slow  and  gradual  enrollment  is  characteristic  of  a  country  where  noth- 
ing is  done  too  suddenly.  It  had  its  advantages  in  this  instance  in  that 
it  enabled  the  Filipino  teachers  to  carry  out  the  unfamiliar  task  that 
had  been  imposed  upon  them  of  grading  their  pupils  and  organizing 
them  in  classes.  This  lack  of  punctuality  is  one  of  the  serious  obstacles 
to  the  progress  of  this  people,  and  it  is  expected  that  the  discipline  of 


262  REPORTS    OF    THE    CIVIL    GOVERNMENT 

the  school,  when  thoroug'hly  established,  will  contribute  to  the  correc- 
tion of  this  evil. 

During  the  past  ({uartcr,  except  in  two  or  three  schools,  the  attend- 
ance has  been  as  large  as  is  compatible  with  the  capacity  of  the  school 
buildings  and  the  attaiiunent  of  the  best  results.  The  popular  discus- 
sion of  the  su])ject  of  education,  the  qualifications  for  entrance  to  the 
public'  service  set  by  the  civil-service  board,  and  the  widespread  belief 
in  the  opening  of  a  new  epoch  in  these  islands,  in  which  knowledge  and 
scholarl}'  attainments  will  be  recognized  as  opening  avenues  to  success- 
ful careers,  seem  to  promise  an  awakening  among  the  Filipino  people. 
The  demand  for  instruction  is  unprecedented,  but  it  is  noticeable  here, 
as  also  in  a  very  large  degree  elsewhere,  that  short  cuts  which  promise 
to  lead  to  salaried  positions  are  preferred.  The  young  and  the  old  are 
stud3ang,  and  many  persons  are  naturally  taking  advantage  of  this 
demand  and  establishing  private  schools.  In  addition  to  the  private 
schools  of  this  class,  several  parochial  scliools,  especially  designed  for 
little  girls,  have  been  recentl}^  opened  in  Manila. 

It  is  difficult  for  the  church  authorities  and  for  manj^  devout  persons 
to  comprehend  the  point  of  view  of  the  American  people,  who  insist 
that  instruction  provided  by  the  state  shall  be  secular,  and  in  view  of 
the  large  part  the  church  has  played  in  the  political  and  social  affairs 
of  the  Philippines  it  is  noteworthy  that  the  protest  against  merely 
secular  instruction  has  not  been  more  pronounced.  With  very  few 
exceptions,  the  Filipino  teachers  have  adopted  the  new  plan,  and  are 
entering  upon  its  execution  with  a  large  measure  of  enthusiasm. 
There  are  two  or  three  instances  of  women  long  in  the  service  who 
have  not  been  able  to  overcome  the  reactionary  influence  of  their 
well-grounded  habits.  They  have  refused  to  study  English  or  to 
countenance  any  change  in  method  or  subject-matter  of  school  instruc- 
tion. One  at  least  has  withdrawn  and  taken  up  work  in  a  parochial 
school.  It  is  remarkal)le  that  there  have  not  been  more  cases  of  this 
kind.  Many  of  the  Filipino  teachers  manifested  anxiety  lest  the 
opening  of  parochial  schools  would  decrease  attendance  on  the  public 
schools  and  destroy  their  prospects.  They  were  not  able  to  see  that 
there  is  ample  room  for  both  classes  of  institutions,  and  that  the  exist- 
ence of  the  public  school  will  necessarily  make  the  parochial  schools 
quite  different  from  what  they  would  be  if  they  were  alone  in  posses- 
sion of  the  ffeld.  Some  effects  of  the  public  school  on  private  schools 
are  even  now  observed,  in  that  the  private  schools  have  adopted  some- 
what of  the  new  method  and  spirit  and  are  giving  large  place  to  the 
teaching  of  English.  We  look  with  satisfaction  on  whatever  spirit  of 
rivalry  and  emulation  may  be  aroused  between  public  and  private 
schools,  in  that  it  will  lead  to  the  awakening  of  the  minds  of  the  youth 
and  provoke  a  new  zeal  in  the  work  of  instruction. 

All  public  instruction  in  the  city  of  Manila  at  the  present  time  is  in 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  268 

the  English  language.  "  Spanish  still  holds  a  place  in  private  institu- 
tions and  still  continues  to  attract  Filipino  students  as  being  the  only 
language  in  which  secondaiy  or  higher  instruction  is  at  present  given. 
The  development  of  the  normal  school  and  the  secondar}'  schools  in 
English  will  open  to  the  Filipino  boy  higher  grades  of  education 
through  English,  which  at  present  he  sees  no  way  of  reaching  except 
through  the  Spanish  schools  and  the  medium  of  the  Spanish  tongue.  It 
is  thus  essential  to  the  success  of  the  S3'stem  of  public  instruction  here 
established  that  secondary  and  higher  instruction  in  English  should  be 
very  early  organized.  Here,  as  everywhere,  a  system  of  public 
instruction  can  be  firml}"  established  onl}^  by  building  solidlj'  at  the 
bottom.  The  abandonment  of  Spanish  studies  made  necessary  the 
formation  of  a  new  course  of  instruction  at  the  opening  of  the  present 
school  year.  /  A  simple  curriculum  for  the  primary  school,  covering 
four  years,  has  been  established,  and  by  the  introduction  of  this  cur- 
riculum it  has  been  possible  to  systematize  the  work,  to  grade  the 
pupils,  and  to  give  definiteness  to  the  primary  school  course. 

Extraordinary  efforts  have  been  made  and  will  be  continued  to  pre- 
pare Filipino  teachers  for  their  task.  Already  they  have  so  far  mas- 
tered the  English  language  that  they  are  able  to  make  use  of  it  in 
teaching,  and  it  is  gradually  coming  to  be  the  language  of  the  schools. 
Efforts  are  being  made  to  show  them  the  necessity  of  breaking-  away 
from  the  mechanical  and  the  routine  methods  which  they  have  hitherto 
followed.  The  interested  efforts  of  Filipino  teachers  to  teach  English 
to  children  after  they  themselves  have  had  merely  a  year  of  instruction 
in  that  language  are  noteworthy,  and  their  zeal  and  their  success  in 
this  form  of  instruction  will  contribute  greatly  to  the  spread  of  the 
English  language  here  and  the  success  of  popular  education. 

The  greatest  need  of  instruction  in  Manila  at  the  present  time  is 
suitable  primary-school  buildings.  In  this  respect  the  city  of  Manila 
is  Ijehind  many  provincial  towns,  since  many  of  these  possess  at  least 
one  substantial  schoolhouse  of  stone  or  wood.  The  city  of  Manila, 
with  its  11  districts  and  217,000  inhabitants,  has  but  three  buildings 
erected  by  the  Spanish  Government  for  primary-school  purposes,  and 
one  of  these  is  so  poorly  constructed  and  is  in  such  a  dilapidated  condi- 
tion that  it  is  unfit  for  use.  The  civil  government  lacks  certain  means  of 
retaining  possession  of  buildings  that  the  military  government  enjoyed, 
consequently  since  the  establishment  of  civil  government  in  Manila 
certain  dwelling  houses  that  had  been  used  as  schoolhouses  have  been 
relinquished  upon  the  demands  of  their  owners,  and  it  is  difficult  to 
find  others  to  take  their  places.  Undoubtedly  the  want  of  proper 
public-school  buildings  constitutes  at  present  a  check  on  further  pro- 
gressive movements  in  the  work  of  the  schools. 

There  has  been  an  increased  demand  for  places  in  the  night  schools, 
and  the  instruction  has  been  extended  from  three  to  six  nights  in  the 


2(U  REPORTS    OF    THE    CIVIL    GOVERNMENT 

week.  Appliciints  are  now  admitted  on  the  basis  of  advanced  qualifi- 
cations, and  hundreds  have  been  turned  away.  There  arc^  now  8  such 
schools  in  operation  in  the  city  and  3  others  in  process  of  organization. 
The  attendance  in  these  night  schools  for  the  month  of  September  was 
1,800,  ani  the  number  of  principal  and  other  teachers  employed  was 
68.  In  some  of  the  schools  advanced  classes  have  been  organized,  and 
among  these  a  class  in  typewriting  and  stenography,  a  class  which 
prepares  students  for  civil-service  examinations,  and  a  teachers'  class 
in  history. 

At  the  present  time  Filipino  teachers  are  incompetent  to  assist  in 
the  fourth  year's  primary  instruction,  which,  therefore,  if  given  at 
all,  must  be  given  entirely  bj^  American  teachers.  For  this  reason, 
and  to  inaugurate  secondary  instruction  in  Manila  for  Filipino  children 
as  soon  as  possible,  and  in  order  to  show  them  that  such  instruction  is 
to  be  furnished  in  English,  children  in  the  primary  schools  who  are 
prepared  to  undertake  the  fourth  year's  instruction  have  been  admitted 
to  the  English  school  in  the  escuela  municipal,  and  are  there  being 
organized  and  trained  for  the  work  of  the  high  school,  which  will  be 
established  in  the  next  few  weeks. 

The  organization  of  Manila  under  civil  government  on  August  7 
separated  from  the  municipality  the  schools  of  Pasay,  Santa  Ana,  and 
Corregidor,  with  18  teachers  and  about  800  pupils.  This  reduced  the 
number  of  primary  schools  in  the  city  to  36,  with  4,21:2  pupils  in 
attendance  for  the  month  of  September.  One  hundred  and  thirty-four 
Filipino  teachers  are  now  employed  in  the  city  of  Manila.  Their 
salaries  range  from  $20  to  'f 50  gold  a  month,  which  last  is  paid  to  one 
principal.  These  salaries  place  the  teachers'  profession  at  least  on  the 
same  level  as  Government  clerkships,  which  is  a  great  advance  from 
the  position  they  held  under  the  Spanish  Government,  the  salaries  in 
most  cases  having  been  more  than  doubled.  The  attraction  of  this 
work  seems  to  be  sufiicient  to  draw  to  it  many  of  the  brightest  young 
men  and  women,  who  in  it  give  evidence  of  a  commendable  profes- 
sional spirit.  As  a  sign  of  this  may  be  noted  a  recently  organized 
association  of  Filipino  teachers,  which  has  among  its  purposes  the 
stud}"  of  educational  affairs  in  connection  with  their  work. 

^  THE   MANILA   TRADE    SCHOOL. 

By  section  18,  act  No.  74,  provision  was  made  for  the  establishment  and 
maintenance  in  the  city  of  Manila  of  a  trade  school  for  the  instruction 
of  Filipinos  in  the  useful  trades,  and  in  section  23  of  the  same  act  the 
sum  of  $15,000  was  appropriated  for  the  organization  and  maintenance 
of  a  trade  school  in  Manila  for  the  year  1901. 

By  the  transport  Thomas  the  principal  and  teachers  for  this  school 
arrived  in  Manila.  Instruction  in  this  school  will  cover  a  wide  range 
of  subjects,  and  it  is  expected  that  it  will  tend  to  meet  the  most 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  265 

important  want  of  the  people  of  these  islands.  This  kind  of  education 
has  made  very  little  progress  in  the  Philippines,  and  it  is  natural  that 
this  should  be  so,  for  the  men  who  dominated  the  educational  affairs 
of  these  islands  under  the  Spanish  regime  were  conspicuous  for  the 
theory  of  life  that  concerned  itself  chiefly  with  the  affairs  of  another 
world.  The  work  here  proposed  will  supplement  what  has  already 
been  done. 

The  trade  school  is  opened  in  buildings  on  the  exposition  grounds. 
In  connection  Avith  the  instruction  in  printing,  we  shall  have  the  gov- 
ernment printing  office  as  furnishing  object  lessons  in  all  the  depart- 
ments there  established,  and,  as  through  the  instruction  in  telegraphy 
it  is  hoped  that  young  men  may  be  equipped  for  operating  the  tele- 
graph lines,  so  through  the  instruction  in  printing  it  is  expected  that 
young  men  will  be  equipped  to  help  carry  on  the  work  of  the  govern- 
ernment  printing  office. 

From  various  parts  of  the  archipelago  requests  were  made  for  aid 
in  the  establishment  of  schools.  These  requests  are  for  assistance 
in  constructing  school  buildings,  for  teachers  to  give  instruction  in 
English,  and  for  teachers  to  give  instruction  in  manual  training  and 
the  trades.  It  is  significant  that  next  to  the  demand  for  instruction  in 
English  there  comes  the  demand  for  a  kind  of  instruction  to  which 
in  these  islands  little  attention  has  hitherto  been  given,  and  it  is  thought 
to  be  highly  desirable  to  satisfy  this  demand  as  far  as  possible.  And 
in  the  future  attempts  will  be  made  to  secure  as  teachers  persons  who 
have  had  training  or  experience  tending  to  fit  them  for  this  kind  of 
work.  The  backwardness  of  these  islands  in  almost  all  forms  of  industry 
and  agriculture  is  due,  not  to  lack  of  resources  or  physical  conditions 
favorable  to  development  in  these  lines,  but  in  a  large  measure  to  the 
fact  that  little  or  no  effort  has  been  made  to  furnish  the  people  proper 
tools,  implements,  and  machinery  or  an  effective  knowledge  of  how  to 
use  them.  Trade  schools  will,  therefore,  support  the  Filipinos  at  their 
weakest  point,  and,  if  established  in  sufficient  numbers  and  properly 
organized  and  conducted,  will  do  more  than  almost  any  other  agency 
to  put  them  in  the  possession  of  those  qualities  or  powers  which  tend 
most  directly  o  modernizing  them  and  raising  their  standard  of 
civilization. 

INSTRUCTION    IN   TELEGRAPHY. 

On  August  15,  1901,  Major-General  Adna  K.  Chaffee  informed  the 
civil  governor  that,  having  in  view  the  ultimate  and  gradual  transfer  of 
military  telegraphic  communications  in  the  archipelago  to  the  control 
of  (;ivil  government  of  the  islands,  he  would  give  to  the  chief  signal 
officer  all  practical  assistance  in  furnishing  instruction  in  telegraph}'^ 
to  Filipinos,  and  that  as  the  pupils  became  proficient  and  available  he 
would  have  them  assigned  to  positions  in  the  service,  provided  the 


266  REPORTS    OF    THI^:    CIVIL    GOVERNMENT 

civil  oovoriiinent  would  i)ay  their  wages.  In  the  letter  conveying  this 
information.  General  ChaU'ee  also  indicated  that  "probably  the  best 
course  to  pursue  would  be  to  inaugurate  the  service  under  native  oper- 
ators by  islands,  as,  for  instance,  Panay,  Negros,  gradually  extending 
as  operators  are  made  available."  In  a  personal  interview  with  the 
Commission  on  August  10,  1901,  and  in  a  letter  to  Governor  Taft  of 
the  same  date,  General  Greeley  set  forth  his  views  concerning  the 
proposed  transfer. 

In  order  [he  said]  that  such  transfer  may  be  made  with  the  least 
detriment  to  the  public  interests  it  would  seem  advisable  to  transfer 
the  entire  lines  on  some  single  island,  say  Panay,  to  be  followed  later 
by  Negros,  northern  Luzon,  and  such  other  islands  as  may  be  mutually 
agreed  upon  by  your  excellency  and  the  commanding  general  of  the 
army  in  the  Philippines. 

Appreciating  the  fact  that  the  present  operation  of  these  lines  by 
American  civilian  operators  would  be  an  onerous  burden  to  the  finances 
of  the  Philippines,  the  Chief  Signal  Oflicer  of  the  Army  offers  to  the 
civil  government  the  services  of  the  signal  corps  of  the  Philippines  to 
meet  such  contingency  by  educating  and  training  suitable  intelligent 
Filipinos  as  telegraphers. 

To  this  end  Lieut.  Col.  James  Allen,  chief  signal  officer  Military 
Division  of  the  Philippines,  will  cooperate  fully  and  heartily  with  the 
civil  government  in  this  work  of  technical  education.  Colonel  Allen 
further  expresses  his  willingness  to  employ,  temporarily,  at  suitable 
salaries,  such  Filipinos  as  may  become  operators,  after  affording  them 
the  advantages  of  careful  training  under  experienced  electricians  and 
operators  of  the  Signal  Corps.  This  method  appears  to  be  the  simplest 
and  quickest,  as  it  is  the  cheapest,  method  of  forming  a  corps  of  native 
telegraphers  and  electricians  for  the  maintenance  of  an  insular  s^^stem 
of  telegraph  lines  and  cables. 

Indeed,  it  may  be  said  that  it  would  be  practically  impossible  to 
obtain  a  suitable  and  reliable  civilian  force,  except  at  a  great  outlay  of 
time  and  money,  an  opinion  based  on  the  experience  of  the  signal 
corps  in  Cuba  and  Porto  Rico,  where  civilian  operators,  induced  by 
liberal  salaries,  entered  the  Government  service  only  sunmiarily  to 
leave  it  at  their  own  convenience,  at  times  to  the  serious  embarrassment 
of  the  Government. 

This  plan  is  simply  advanced  b}^  the  Chief  Signal  Officer  of  the  Army 
as  a  tentative  one,  subject  to  such  modifications  as  in  the  opinion  of 
j^our  excellency  and  the  major-general  commanding  the  army  in  the 
Philippines  may  be  necessary  in  the  public  interest. 

The  Chief  Signal  Officer  of  the  Army  and  his  subordinates  stand 
ready  to  assist  in  every  way,  and  hope  the  civil  government  may  be 
able  to  receive  and  operate  by  its  own  employees  the  present  system 
of  telegraphs  on  one  or  more  islands  at  a  very  early  day. 

Meanwhile,  steps  have  been  taken  to  throw  open  the  telegraph  lines 
to  the  commercial  public  on  terms  of  the  greatest  possible  liberality, 
the  rate  being  2  cents  per  word  between  stations  on  the  same  island 
and  4  cents  per  word  between  stations  on  separate  islands. 

The  project  of  establishing  instruction  in  telegraph}^  was  referred 
to  the  secretary  of  public  instruction,  and  arrangements  were  made  for 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  267 

carrying  on  the  school  as  part  of  the  trade  school  which  was  created 
by  law  January  21,  1901.  It  is  installed  in  one  of  the  buildings  on  the 
exposition  grounds. 

MANILA   NORMAL   SCHOOL. 

The  preliminary  term  of  the  Manila  Normal  School  was  opened  on 
Wednesday,  April  10,  and  was  closed  Friday,  May  10,  1901.  The 
expenses  of  this  term  were  paid  out  of  the  appropriation  for  a  normal 
school  made  by  act  No.  li.  Dr.  David  P.  Barrow^s,  superintendent  of 
city  schools,  had  immediate  charge  as  acting  principal  of  the  Manila 
Normal  School.  The  school  was  held  in  the  school  building  on  Calle 
Victoria,  in  the  Walled  City,  known  as  the  Escuela  Municipal.  This 
building  had  been  occupied  by  the  Sisters  of  Charity,  who,  under  the 
authority  of  the  military  governor,  had  conducted  there  a  public 
school  for  girls.  Having  been  used  both  as  a  school  and  a  hospital  for 
Spanish  soldiers,  it  was,  like  most  of  the  public  buildings  in  Manila, 
greatly  in  need  of  repairs,  but  when  properly  repaired  it  was  found  to 
be  the  best  school  building  under  the  control  of  the  Government. 

An  announcement  of  the  proposed  normal  school  was  made  in  both 
English  and  Spanish,  and  American  teachers  throughout  the  islands 
cooperated  in  informing  the  Filipino  teachers  of  the  character  of  the 
work  to  be  done.  The  commanding  officers  of  the  several  posts  where 
there  were  known  to  be  schools,  having  been  informed  b}^  letters  and 
pamphlets,  encouraged  the  teachers  of  their  respective  towns  to  attend. 
Attendance  of  the  teachers  from  the  provinces  was  greatly  facilitated 
b}^  the  generosit}^  of  different  transportation  companies.  Free  trans- 
portation was  granted  the  teachers  from  the  provinces  to  Manila  by 
the  Compania  Naviera,  Mercantil  Filipina,  Luis  Hidalgo,  Philippine 
Lumber  and  Development  Compan}',  and  Smith,  Bell  &  Co.  Half  fare 
was  granted  by  the  Compania  Maritima,  The  Philippine  Trading  Com- 
pany, Gutierres  Hermanos,  and  the  Compania  General  de  Tobacos  de 
Filipinas.  It  was  estimated  in  the  beginning  that  there  would  not  be 
more  than  350  teachers  in  attendance,  and  it  was  thought  that  onl}'  this 
number  could  be  accommodated  in  the  building  selected  for  the  school. 
On  the  opening  day,  however,  it  was  found  that  450  had  been  enrolled. 
Measures  had  to  be  taken,  therefore,  to  limit  the  num])er  to  be  allowed 
to  matriculate,  but  as  many  left  the  provinces  without  being  informed 
of  any  limitation  as  to  the  number  who  might  attend,  it  was  found 
advisal)le  to  open  additional  quarters.  Accordingly,  a  portion  of  the 
building  formerly  occupied  by  the  nautical  school  was  brought  into 
use.  Furniture  was  moved  in  and  nine  classes  were  organized  in  that 
building.  The  same  work  was  carried  on  as  in  the  original  building, 
and  all  pupils  were  admitted  to  the  Escuela  Municipal  for  the  morning 
exercdses  and  for  the  observation  of  special  classes.  In  ordei"  to 
lighten  the  expenses  of  teachers  coming  from  the  provinces  or  from 


268  REPORTS    OF    TIIK    CIVIL    (iOVERNMENT 

distant  ])artsi)i'  tlu>  islands,  facilities  for  sleeping  were  arranged  ni  the 
school  buildings  of  jNIalate,  Pace,  and  Sanialoc.  Each  building  was 
placed  in  charge  of  an  American  teacher,  who  was  made  responsible 
for  the  property  that  was  used  in  furnishing  it  and  given  general 
supervision  over  the  teachers  from  the  provinces. 

It  was  a  noteworthy  fact  that  of  the  teacihers  coming  from  the  j^rov- 
inces  about  10  per  cent  were  able  to  speak  English  with  some  degree 
of  lluency.  These  persons  were  representatives  of  the  best  intelligence 
and  cultivation  throughout  the  archipelago.  Altogether  000  were 
enrolled  and  admitted  to  classes,  and  of  this  number  5Y0  studied  faith- 
fully to  the  end  of  the  term  and  were  given  certificates  testifying  to  the 
fact  of  their  attendance.  Fortunately  the  Escuela  Municipal  contains 
a  large  hall,  and  in  this  the  whole  number  were  gathered  at  the  end 
of  the  term  for  their  closing  exercises.  The  general  superintendent 
of  public  instruction  has  expressed,  in  a  public  report,  his  apprecia- 
tion and  commendation  of  the  work  done  by  Dr.  Barrows  in  the  organi- 
zation and  successful  conduct  of  this  school. 

In  view  of  the  large  number  of  applicants  for  positions  in  the  schools 
of  Manila  at  the  close  of  the  preliminary  term  of  the  normal  school,  it 
was  decided  to  make  arrangements  for  determining  definitely  the 
qualifications  of  these  applicants.  Classes  were  organized  under  munici- 
pal authority  for  the  purpose  of  examining  applicants  and  for  training 
those  who  were  found  not  to  be  adequately  qualified  for  the  positions 
sought.  These  classes  were  in  charge  of  four  teachers  and  held  ses- 
sions five  days  in  the  week.  When  Filipino  teachers  were  needed  in 
the  cit}"  schools  they  were  selected  from  the  best  of  the  highest  class, 
and  other  applicants  came  in  to  fill  the  vacancies  thus  made.  These 
classes  were  organized  and  maintained  to  carry  on  the  work  of  normal 
instruction  from  the  close  of  the  preliminar}^  term  to  such  time  as  the 
regular  work  of  the  normal  schools  might  be  undertaken. 
^  On  the  6th  of  September  Mr.  E.  B.  Bryan,  formerly  of  the  Univer- 
sity of  Indiana,  arrived  and  was  at  once  put  in  charge  of  the  normal 
school.  Before  any  formal  announcement  of  the  opening  of  the  school 
was  made  250  students  were  enrolled.  For  the  want  of  an  adequate 
building  this  school  was  conducted  in  the  Escuela  Municipal,  where  the 
preliminary  term  was  held.  The  same  building  is  at  present  occupied 
in  the  forenoon  b}^  a  graded  school,  to  which  pupils  only  are  admitted 
who  have  essentially  such  a  knowledge  of  English  as  may  be  expected 
of  children  who  have  this  language  as  their  mother  tongue.  Of  such 
pupils  130  are  at  present  enrolled.  This  makes  it  necessary  to  confine 
the  sessions  of  the  nornal  school  to  the  afternoon,  but  steps  will  be 
taken  to  provide  for  it  a  suitable  building  in  the  immediate  future. 

While  this  central  normal  school  will  furnish  instruction  to  a  large 
number  of  pupils,  it  is  clearly  seen  that  this  number  will  represent 
only  a  fraction  of  those  persons  in  the  provinces  who  are  at  present 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  269 

teaching  or  who  propose  to  become  teachers.  To  extend  this  instruc- 
tion so  as  to  embrace  the  largest  possible  number  of  persons  in  need 
of  it,  arrangements  are  being  made  for  holding  normal  terms  in  the  sev- 
eral divisions.  By  assembling  the  teachers  of  the  various  divisions  for 
a  number  of  weeks  each  year  and  placing  the  Filipino  teachers  under 
the  discipline  and  instruction  of  trained  American  teachers  much  will 
be  done  toward  giving  them  knowledge  needed  in  their  profession  and 
inspiring  them  with  the  enthusiasm  and  ambition  requisite  to  render 
them  efficient  in  their  work. 

SCHOOL   OF  AGRICULTUEE. 

By  section  19  of  act  No.  74  it  was  provided  that  there  should  be 
established  and  maintained  a  school  of  agriculture  in  the  island  of 
Negros,  and  by  section  24  of  the  same  act  the  sum  of  $15,000  was 
appropriated  out  of  any  funds  in  the  insular  treasury  not  otherwise 
appropriated  for  the  organization  and  maintenance  of  the  school  for 
the  year  1901.  It  was,  moreover,  provided  that  the  superior  advisory 
board,  created  by  section  4  of  act  No.  74,  should  recommend  to  the 
commission  for  final  determination  a  proper  site  for  this  school.  In 
view  of  the  fact  that  the  insular  government  owns  a  plantation  of 
about  2,000  acres  on  the  eastern  side  of  Oriental  Negros,  about  35 
miles  from  Bacolod,  known  as  La  Carlota,  it  was  thought  that  this 
might  be  a  suitable  place  for  an  agricultural  school  and  experimental 
farm,  !)ut  its  inaccessibility  has  suggested  that  it  might  not  be  difficult 
to  find  a  more  advantageous  site  for  the  school,  and  one  that  might  be 
readily  reached  from  all  parts  of  the  islands.  Whatever  buildings  the 
Spaniards  constructed  at  La  Carlota,  and  whatever  appliances  for 
instruction  and  cultiv^ation  were  collected  there,  have  been  almost 
entirely  destroyed  or  scattered. 

The  superior  advisory  board,  on  whom  rests  the  duty  of  recommend- 
ing a  proper  site,  was  only  recently  appointed,  and  has  consequently 
made  no  recommendation.  This  board  was  appointed  by  the  civil 
governor,  and  is  at  present  composed  of  the  general  superintendent  of 
public  instruction,  Sr.  Tomas  G.  del  Rosario,  Sr.  Pedro  Serrano  Lok- 
taw,  Sr.  Demetrio  Larena,  and  Sr.  Mena  Crisologo. 

STATISTICS   OF   PUPILS. 

It  is  impossible,  on  account  of  the  short  time  that  has  elapstd  since 
the  majority  of  the  American  teachers  were  sent  to  their  stations,  to 
make  a  definite  and  correct  statement  of  the  number  of  pupils  enrolled 
in  all  the  public  schools  of  the  archipelago  or  to  determine  the  ratio 
of  those  in  regular  attendance  to  the  whole  number  enrolled.  An 
estimate,  based  on  reports  already  received  and  on  the  number  of 
teachers  employed,  indicates  that  there  are  over  150.000  Filipino  pupils 
enrolled  in  the  free  primary  schools  established  by  the  Government, 

23181—04 18 


270  REPORTS    OB^    THE    CIVIL    GOVERNMENT 

aiul  that  there  iirc  over  75,000  pupils  in  uctutil  daily  iittendancc.  The 
disorepanc}'  between  the  number  of  primary  pupils  enrolled  and  the 
number  in  actual  attendance  is  in  part  due  to  the  fact  that  in  many 
to^Yns  schoolhouses  are  still  used  or  occupied  b}'  the  military  authori- 
ties, and  it  is  impossible  to  assemble  all  the  pupils  who  wish  to  attend 
school.  This  estimate  indicates,  moreover,  that  there  are  ])etween 
3,000  and  4,000  elementary  Filipino  teachers  engaged  in  the  schools, 
about  2,000  of  whom  are  daily  receiving  at  least  one  hour  of  English 
instruction.  There  are  also  at  least  10,000  adults  receiving  English 
instruction  in  the  evening  schools  conducted  by  American  teachers. 
Demands  for  the  establishment  of  schools  for  the  instruction  of  adults 
in  English  are  coming  from  all  parts  of  the  archipelago,  and  the  Ameri- 
can teachers  have  been  given  authority  to  establish  evening  schools 
for  giving  instruction  in  English  wherever  they  are  needed.  Judging 
from  the  applications  and  the  numbers  already  under  instruction,  and 
considering  the  eagerness  of  the  Filipinos  to  learn  English,  it  is  safe 
to  say  that  within  a  few  weeks  between  20,000  and  30,000  adults  will 
be  attending  these  evening  schools. 

DEMAND    FOR   MORE    TEACHERS. 

Notwithstanding  the  large  number  of  teachers  already  brought  to 
these  islands,  the  demand  is  by  no  means  fully  met.  The  teachers  who 
have  already  come  are  cordially  welcomed  in  the  places  to  which  they 
are  assigned,  and  much  disappointment  has  been  expressed  by  the 
towns  to  which  it  has  been  impossible  to  send  American  teachers,  and 
applications  for  them  are  continually  being  made  by  mail  and  tele- 
graph. The  distribution  of  the  769  American  teachers  already  engaged 
is  shown  by  Appendix  BB,  giving  the  towns  to  which  teachers  have 
been  sent,  and  the  number  assigned  to  each  town.  In  view  of  the  unset- 
tled condition  in  some  parts  of  the  islands,  and  the  destruction  of  build- 
ings during  the  war  in  other  parts,  and  the  difficulty  of  finding  condi- 
tions of  living  suitable  for  women,  it  is  deemed  expedient  in  the  imme- 
diate future  to  confine  appointments  to  young  men,  of  whom  200  or  300 
more,  well  trained  and  of  good  character  and  willing  to  endure  some 
discomfort  and  hardship,  can  be  employed  to  advantage.  Undoubt- 
edly in  the  course  of  time,  after  the  people  have  come  to  understand 
thoroughly  that  the  occupations  of  peace  are  more  profitable  than 
those  of  war,  the  demand  for  the  education  of  girls  will  be  strength- 
ened, and  it  will  be  necessary  then  to  employ  more  women  for  their 
instruction.  It  will  be  seen  by  Appendix  CC  that  the  teachers  already 
employed  have  been  taken  from  all  parts  of  the  Union.  Of  the  insti- 
tutions that  were  authorized  to  make  appointments  a  large  numbei 
have  left  their  quotas  unfilled.  A  list  of  such  institutions  and  officials 
is  here  given  as  Appendix  DD.  At  present  there  are  some  60  or  70 
teachers  already  appointed,  who  will  arrive  in  the  islands  during  the 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  27 1 

next  few  months,  about  40  of  whom  will  leave  San  Francisco  in  Octo- 
ber, There  remain,  therefore,  about  200  to  be  appointed  to  till  the 
authorized  quota  of  1,000,  and  for  these  positions  there  are  on  file 
about  3,000  applications,  which  will  be  caref  ull}'  considered  in  making 
up  the  desired  number. 

The  organization  of  the  office  force  and  the  range  of  salaries  paid 
to  the  superintendents,  the  clerks,  and  the  teachers  are  shown  in 
Appendix  EE.  This  exhibit  shows  also  the  number  of  teachers  or 
emploj^ees  receiving  each  of  the  stated  salaries.  A  small  addition  has 
been  made  to  the  salaries  of  man}^  teachers  in  consideration  of  the 
extra  work  they  are  doing  in  the  night  schools.  For  details  concern- 
ing the  conditions  of  the  countr}^  and  the  work  of  the  bureau  of 
public  instruction  reference  is  made  to  the  report  of  Dr.  Fred  W. 
Atkinson,  general  superintendent  of  public  instruction,  attached  hereto 
as  Appendix  FF.  The  report  is  somewhat  fragmentary,  since  it  was 
deemed  inexpedient  to  embrace  in  it  matter  dealing  with  the  early  part 
of  the  school  year,  which  has  already  been  published  in  a  report  by 
Maj.  Gen.  Arthur  MacArthur,  lately  military  governor  of  the  Philip- 
pine Islands. 

NAUTICAL   SCHOOL. 

Since  the  date  of  the  commission's  last  preceding  report  the  Nau- 
tical School  has  continued  its  not  very  distinguished  career.  The 
number  of  students  has  increased,  but  they  hiive  not  been  subject  to 
that  rigidit}'  of  discipline  demanded  by  the  purposes  of  their  instruc- 
tion. This  has  been  due,  in  large  part,  to  irregularity  of  attendance 
and  to  the  failure  on  the  part  of  the  parents  of  the  boj^s  to  appreciate 
the  importance  of  consecutive  work.  Until  July  of  the  present  j^ear 
the  school  held  a  somewhat  independent  position  directly  under  the 
military  governor.  On  Julj'^  3  it  was  determined,  by  a  resolution  of 
the  commission,  "that  in  the  opinion  of  the  commission  the  Nautical 
School  should  be  made  subject  to  the  supervision  of  the  general  super- 
intendent of  public  instruction,  that  the  requisitions  for  appropriations 
for  the  same  should  be  submitted  to  such  superintendent,  and  that  the 
head  of  the  Nautical  School  should  report  to  him."  It  is,  however, 
doubted  that  the  ends  sought  through  the  instruction  here  given  can 
be  attained  except  by  a  complete  reorganization  of  the  institution, 
which  will  soon  be  undertaken. 

SENDING   STUDENTS   TO    AMERICA. 

It  is  recognized  by  the  more  intelligent  persons  in  the  diflferent 
parts  of  the  archipelago  that  the  quickest  and  surest  way  for  Filipino 
youth  to  acquire  the  English  languageand  to  arrive  at  an  understanding 
of  Western  civilization  as  it  exists  in  America  is  to  live  among  Ameri- 
cans in  the  United  States  and  be  tauyht  in  American  schools.     Acting 


272  Kl<:i'()UTS    OK    TIIK    CIVIL    OOVEENMETTT 

on  this  knowledov,  niaiiy  parents  have  already  enrolled  their  sons  in 
American  schools,  and  in  certain  provinces  the  several  towns  are  niak- 
ino-  provision  each  to  send  and  maintain  a  1)03^  in  some  school  in  the 
United  States. 

Many  propositions  have  already  been  made,  both  by  persons  in 
America  and  by  persons  in  the  Philippines,  looking  to  the  use  of  the 
funds  of  the  insular  government  for  this  purpose.  Hitherto,  however, 
it  has  been  considered  expedient  to  allow  individual  and  local  zeal  to 
carry  on  the  work;  yet  the  commission  is  aware  of  the  immense  advan- 
tage which  will  accrue  to  these  islands  by  the  extension  of  this  practice. 
In  no  other  way  can  young  Filipinos,  whose  ancestors  have  been 
ph3^sically  and  intellectually  removed  from  contact  with  modern  life, 
acquire  a  thorough  knowledge  of  Western  civilization.  When,  there- 
fore, the  public  schools  are  thoroughly  organized,  it  ma}^  be  well  to 
hold  out  the  privilege  of  some  years  of  residence  in  an  American  insti- 
tution of  learning  as  a  reward  for  extraordinary^  achievements  on  the 
part  of  some  of  the  most  proficient  pupils  in  the  public  schools  of  the 
islands. 

SUMMARY  OF  RECOMMENDATIONS. 

The  commission  recommends — 

1.  That  Congress  make  appropriations  to  construct  posts  or  garri- 
sons for  the  army  outside  of  the  towns,  so  that  they  shall  not  be  quar- 
tered in  the  towns. 

2.  That  Congress  be  requested  to  confirm  the  legislation  of  the 
commission  already  enacted,  and  vest  by  Congressional  enactment  in 
the  civil  governor  and  commission  and  their  successors  to  be  appointed 
by  the  President  the  authority  heretofore  exercised  by  them  under 
the  instructions  of  the  President,  with  the  limitations  therein  con- 
tained, until  January  1,  1904;  and  that  provision  be  made  in  such 
legislation  for  a  government  to  begin  on  January  1,  1904,  and  to  be 
composed  of  a  governor  and  the  heads  of  four  executive  departments, 
to  be  appointed  b3^  the  President;  of  an  executive  council,  to  consist 
of  the  governor  and  the  four  heads  of  departments,  and  four  others  to 
be  appointed  by  the  President  (the  executive  council  to  consist  both 
of  Americans  and  Filipinos),  and  of  a  popular  assembly  of  not  exceed- 
ing 30  representatives,  to  be  elected  from  districts  to  be  determined 
after  a  census  of  the  Filipino  population  in  the  islands;  that  in  such 
government  the  members  of  the  popular  assembly  shall  serve  for  a 
term  of  two  years,  and  the  popular  assembly  shall  be  limited  to  an 
annual  session  of  three  months,  from  the  1st  of  January  to  the  Ist  of 
April,  except  as  this  may  be  extended  by  call  of  the  governor  for  a 
definite  period  in  extra  session;  that  the  power  of  the  popular  assem- 
bly shall  be  that  of  a  coordinate  branch  of  the  legislature,  except  that 
in  the  case  of  appropriation  bills,  if  the  popular  assembly  shall  fail  to 
vote  the  appropriations  required  by  law  during  its  regular  session  of 
three  months  the  right  to  vote  such  necessary  appropriations  shall 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  278 

vest  in  the  executive  council;  tliat  the  governor  .shall  have  the  power 
to  veto  the  legislation  of  the  two  chambers  unless  the  same  shall  be 
again  passed  by  a  two-thirds  vote  of  both  houses;  that  Congress  shall 
have  full  power  to  abrogate  all  legislation,  and  that  by  a  joint  vote  of 
the  popular  assembly  and  the  executive  council  two  delegates,  who 
shall  be  residents  of  the  islands,  shall  be  elected  to  represent  the 
interests  of  these  islands  and  the  Filipino  people  before  Congress  and 
the  Executive  at  Washington,  their  expenses  and  salaries  to  be  paid 
from  the  insular  treasury. 

3.  That  the  commission  be  authorized  to  issue  bonds  of  the  insular 
government  with  which  to  buy  up  the  agricultural  holdings  and  other 
property  of  the  religious  orders,  to  purchase  the  same,  and  to  sell 
lands  thus  acquired,  preferably  to  the  present  tenants  on  easy  pay- 
ments, and  be  required  to  use  the  proceeds  of  the  sales  as  a  sinking 
fund  with  which  to  meet  the  bonds  issued. 

4.  That  an  appeal  be  granted  from  the  supreme  court  of  the  islands 
to  the  Supreme  Court  of  the  United  States  in  the  San  Jose  College 
case,  and  in  all  cases  between  the  insular  government  and  the  Catholic 
Church  or  any  of  its  dependencies  in  respect  to  the  ownership  or 
administration  of  trust  or  other  property  in  the  Philippine  Islands. 

5.  That  the  new  tariff  act  put  in  force  on  the  15th  of  November  be 
expressly  confirmed  by  Congressional  act,  and  that  Congress  reduce 
by  at  least  50  per  cent  the  United  States  duty  on  tobacco,  hemp,  and 
other  merchandise  coming  from  the  Philippine  Islands  into  the  United 
States. 

6.  That  the  commission  be  given  power  to  itself  issue  bonds  for  the 
city  of  Manila,  or  to  authorize  the  municipal  board  to  do  so  in  an 
amount  not  exceeding  14,000,000,  sufficient  to  make  needed  improve- 
ments in  the  water  supply  and  the  sewerage  and  drainage  system. 

7.  That  the  commission  be  given  power  to  grant  street  railway,  elec- 
tric light,  telephone,  and  other  municipal  franchises  in  the  towns  of 
the  islands,  subject  to  the  confirmation  of  the  President. 

8.  That  the  commission  be  given  authority  to  pass  a  general  public- 
land  law,  making  provision  for  the  acquisition  of  homestead  rights, 
the  perfecting  of  titles  of  those  who  have  in  good  faith  settled  upon 
public  lands  and  improved  the  same,  and  public  auction  sales  of  the 
public  lands  at  a  fixed  minimum  price  per  acre  in  tracts  of  compara- 
tively large  extent,  and  upon  such  other  conditions  as  the  commission 
may  impose;  and  that  this  authority  shall  include  the  right  of  the  com- 
mission to  grant  to  the  pueblos  commons  from  the  public  lands. 

9.  That  the  commission  be  authorized  to  continue  the  present  regu- 
lations of  the  cutting  of  timber,  with  such  modifications  as  experience 
may  show  to  be  wise. 

10.  That  the  commission  be  authorized  to  pass  a  mining  law  having 
a  general  resemblance  to  the  United  States  mining  laws,  with  such 
modifications  as  the  local  conditions  require. 


274  REPORTS    OF    THE    CIVIL    GOVERNMENT 

11.  That  the  commission  bo  ji^iven  power  to  pass  a  general  incorpo- 
ration law  for  the  conducting-  of  legitimate  businesses  by  corporations. 

12.  That  the  counnission  1)0  given  special  authority  to  issue  charters 
to  commercial  railroads,  with  power  to  make  donations  of  lands,  or 
guarantee  the  interest  on  the  investments,  or  both;  such  grants  to  be 
subject  to  the  approval  of  the  President  of  the  United  States. 

13.  That  Congress  enact  a  general  coinage  law  providing  for  the 
establishment  of  a  gold  standard,  with  local  silver  currency,  and  shall 
confer  power  upon  the  commission,  by  a  gold  reserve  and  otherwise, 
to  maintain  the  parit}'  between  the  gold  standard  and  the  local  cur- 
renc}^,  as  indicated  in  the  body  of  the  report. 

14.  That  Congress  shall  enact  a  general  banking  law  for  the  islands, 
providing  for  the  establishment  of  national  banks  in  the  islands,  with 
branches  in  various  parts  of  the  islands  and  in  the  United  States,  for 
the  establishment  of  branches  in  these  islands  of  national  l)anks  located 
in  the  United  States,  for  the  carrying  on  and  supervision  of  other 
banks  not  national,  and  for  the  establishment  of  mortgage  land  banks; 
all  as  outlined  in  the  body  of  this  report. 

15.  That  Congress  shall  enact  a  law  authorizing  the  commission  to 
appropriate  the  Spanish  and  insurrectionary  seized  funds  now  in  the 
treasury  of  the  islands  to  the  making  of  a  school  fund,  or  for  the  use 
of  the  provinces  in  which  such  funds  were  captured. 

16.  That  Congress  shall  provide  a  sum  sufficient  to  reimburse  the 
insular  government  for  the  actual  value  of  the  property  purchased  out 
of  the  funds  of  the  insular  treasurj^  and  turned  over  to  the  Army  under 
General  Order  No.  65,  Headquarters  Division  of  the  Philippines,  1901, 
and  General  Order  No.  S8,  Office  of  the  Military  Governor,  issued 
May  11,  1901. 

17.  That  Congress  shall  enact  a  law  appropriating  a  sum  sufficient 
to  reimburse  the  insular  treasury  for  the  amount  expended  in  the  pur- 
chase and  fitting  of  certain  Spanish  gunboats  turned  over  to  the  Navy 
and  now  used  by  that  Department. 

Wm.  H.  Taft. 
Dean  C.  Worcester. 
Luke  E.  Wright. 
Henry  C.  Ide. 
Bernard  Moses. 

Note. — The  three  Filipino  commissioners  were  not  installed  in 
office  until  the  1st  of  September,  1901,  and  as  the  period  covered  by 
this  report  is  from  the  1st  of  December,  1900,  until  the  1st  of  October, 
1901,  it  was  agreed  between  the  commissioners  that  it  would  be  more 
just  to  make  this  report  as  the  report  of  the  original  commission  rather 
than  that  of  the  commission  as  at  present  constituted.  The  three  Fili- 
pino commissioners,  however,  having  read  this  report,  agreed  in  the 
recommendations  as  to  the  form  of  a  permanent  central  civil  govern- 
oient  to  be  established. 


OF   THE    PHILIPPINE    ISLANDS,   11)00-1903.  275 


CHAP.  803. — An  Act  Making  appropriation  for  the  support  of  the  Army  for  the 
fiscal  year  ending  June  thirtieth,  nineteen  hundred  and  two. 

All  militiiry,  ciyil,  and  judicial  powers  necessary  to  govern  the 
Philippine  Islands,  acquired  from  Spain  by  the  treaties  concluded  at 
Paris  on  the  tenth  day  of  December,  eighteen  hundred  and  ninety-eight, 
and  at  Washington  on  the  seventh  clay  of  November,  nineteen  hundred, 
shall,  until  otherwise  provided  by  Congress,  be  vested  in  such  person 
and  persons  and  shall  be  exercised  in  such  manner  as  the  President  of 
the  United  States  shall  direct,  for  the  establishment  of  civil  govern- 
ment and  for  maintaining  and  protecting  the  inhabitants  of  said  islands 
in  the  free  enjo^nnent  of  their  libert}",  property,  and  religion:  Pro- 
vided., That  all  franchises  granted  under  the  authority  hereof  shall 
contain  a  reservation  of  the  right  to  alter,  amend,  or  repeal  the  same. 

Until  a  permanent  government  shall  have  been  established  in  said 
archipelago  full  reports  shall  be  made  to  Congress  on  or  before  the 
first  day  of  each  regular  session  of  all  legislative  acts  and  proceedings 
of  the  temporary  government  instituted  under  the  provisions  hereof; 
and  full  reports  of  the  acts  and  doings  of  said  government,  and  as  to 
the  condition  of  the  archipelago  and  of  its  people,  shall  be  made  to  the 
President,  including  all  information  which  may  be  useful  to  the 
Congress  in  providing  for  a  more  permanent  government:  Provided., 
That  no  sale  or  lease  or  other  disposition  of  the  public  lands  or  the 
timber  thereon  or  the  mining  rights  therein  shall  be  made:  Andjy^'O- 
vided  further,  That  no  franchise  shall  be  granted  which  is  not  approved 
by  the  President  of  the  United  States,  and  is  not  in  his  judgment 
clearly  necessary  for  the  immediate  government  of  the  islands  and 
indispensable  for  the  interests  of  the  people  thereof,  and  which  can  not, 
without  great  public  mischief,  be  postponed  until  the  establishment  of 
permanent  civil  government;  and  all  such  franchises  shall  terminate 
one  3'ear  after  the  establishment  of  such  permanent  civil  government. 

All  laws  or  parts  of  laws  inconsistent  with  the  provisions  of  this 
Act  are  hereby  repealed. 

Appi'oved,  March  2,  1901. 


[No.  222.] 

An  Act  Providing  for  the  organization  of  the  departments  of  the 
interior,  of  commerce  and  pohce,  of  finance  and  justice,  and  of  puijlic;  instruction. 

By  cmtJiority  of  the  President  of  the  United  States.,  Ije  it  enacted  hy 
the  United  States  Philippine  Commission.,  that: 

Section  1.  Whereas  the  President  of  the  United  States,  through 
the  Secretary  of  War,  has  directed  the  esta])lishment  of  four  depart- 
ments, to  wit,  the  department  of  the  interior,  the  department  of 
commerce  and  police,  the  department  of  finance  and  justice,  and  the 
d(!partment  of  pulilic  instruction,  and  has  appointed  persons  to  be 
secretaries  or  heads  of  such  departments:  Now,' therefore, 


o7('>  REPORTS    OF    THE    CIVIL    (JOVERNMENT. 

Tb.o  ilopartinent  of  the  iMterior  sliall  (Muhracc  within  its  executive 
contiol  the  bureau  of  healtli,  the  (luarautine  service  of  the  marine- 
hospital  corps,  the  bureau  of  forestry,  the  bureau  of  niinino-,  a  bui-eau 
of  aii-riculture,  a  bureau  of  fisheries,  the  weather  bureau,  a  bureau  of 
pao-an  and  Mohammedan  tribes,  the  bureau  of  public  lands,  the  bureau 
of 'o-overnment  laboratories,  and  the  bureau  of  patents  and  cop.yrig-hts. 

Sec.  2.  The  department  of  commerce  and  police  shall  have  under 
its  executive  control  a  bureau  of  island  and  interisland  transporta- 
tion, the  bureau  of  post-ollices,  the  bureau  of  telegraphs,  the  bureau  of 
coast  and  geodetic  survey,  a  bureau  of  engineering  and  construction 
of  public  works  other  than  public  buildings,  a  l)ureau  of  insular  con- 
sta])ulary,  a  bureau  of  prisons,  a  bureau  of  light-houses,  a  bureau  of 
commercial  and  street  railroad  corporations  and  all  corporations 
except  banking. 

Sec.  3.  The  department  of  finance  and  justice  shall  embrace  withm 
its  executive  control  the  bureau  of  the  insular  treasury,  the  bureau 
of  the  insular  auditor,  the  bureau  of  customs  and  immigration,  the 
bureau  of  internal  revenue,  the  insular  cold  storage  and  ice  plant,  a 
bureau  of  banks,  banking,  coinage  and  currency,  and  the  bureau  or 
justice. 

Sec.  4.  The  department  of  public  instruction  shall  embrace  under 

"^  its  executive  control  the  bureau  of   public  instruction,  a  bureau  of 

public  charities,  public  libraries,  and  museums,  the  bureau  of  statistics, 

a  bureau  of  public  records,  a  bureau  of  public  printing,  and  a  bureau 

of  architecture  and  construction  of  public  Iniildings. 

Sec.  6.  The  secretaries  of  the  departments  described  in  the  fore- 
going sections  shall  exercise  the  executive  control  therein  conferred, 
mider  the  general  supervision  of  the  civil  governor.  The  executive 
control  vested  by  law,  however,  in  the  central  government  over  pro- 
vincial and  municipal  governments  and  the  civil  service,  shall  be 
exercised  directly  by  the  civil  governor  through  the  executive 
secretary. 

Sec  6.  The  officers  and  subordinates  of  each  department  shall  con- 
sist of  the  secretary  and  such  assistant  clerks  and  other  employes  as 
may  be  provided  by  law.  The  official  correspondence  of  the  head  of 
each  department  may  be  recorded  by  direction  of  the  head  of  the 
department  in  the  office  of  the  executive  secretary,  and  such  clerical 
work  as  may  be  needed  in  each  of  the  departments  and  as  may  be  con- 
veniently done  in  the  office  of  the  executive  secretary  shall  be  there 
done  by'^direction  of  the  head  of  each  department. 

Sec.*^7.  Nothing  in  this  act  contained  in  respect  to  the  executive 
control  l\y  the  department  of  finance  and  justice  over  the  office  of 
insular  auditor  and  the  office  of  insular  treasurer  shall  affect  the 
powers  of  those  officers  conferred  by  Act  No.  90,  and  the  independ- 
ence of  judgment  to  be  exercised  by  the  auditor  in  auditing  and 
adjudicating  the  validity  of  accounts  presented  to  him  in  accordance 
with  law. 

Sec.  8.  The  public  good  requiring  the  speedy  enactment  of  this  bill, 
the  passage  of  the  same  is  hereby  expedited  in  accordance  with  section 
2  of  "An  act  prescribing  the  order  of  procedure  by  the  Commission 
in  the  enactment  of  laws,"  passed  September  26,  1900. 
Sec.  9.  This  act  shall  take  eifect  on  its  passage. 
Enacted,  September  6,  1901. 


INAUGURAL  ADDRESS  OF  THE  CIVIL  GOVERNOR. 


My  Fellow-Countrymen:  This  ceremony  marks  a  new  step  toward 
civil  o-overnment  in  the  Philippine  Islands.  The  ultimate  and  most 
important  step,  of  course,  will  be  taken  by  the  Congress  of  the  United 
States,  but  with  the  consent  of  the  Congress  the  President  is  seeking 
to  make  the  Islands  ready  for  its  action.  However  provisional  the 
change  made  to-day,  the  President  by  lixing  the  natal  day  of  the 
Republic  as  its  date  has  manifested  his  view  of  its  importance  and  his 
hope  that  the  d'dj  so  dear  to  Americans  may  perhaps  be  also  associated 
in  the  minds  of  the  Filipino  people  with  good  fortune.  The  transfer 
to  the  Commission  of  the  legislative  power  and  certain  executive  func- 
tions in  civil  affairs  under  the  military  government  on  September  first  of 
last  year,  and  now  the  transfer  of  civil  executive  power  in  the  pacified 
provinces  to  a  civil  governor,  are  successive  stages  in  a  clearly  for- 
mulated plan  for  making  the  territory  of  these  Islands  ripe  for  perma- 
nent civil  government  on  a  more  or  less  popular  basis.  As  a  further 
step  in  the  same  direction,  on  September  first  next,  at  the  beginning  of 
the  Commission's  second  legislative  year,  there  will  be  added  as  mem- 
bers to  that  body  by  appointment  of  the  President,  Dr.  Trinidad  H. 
Pardo  de  Tavera,  Senor  Don  Benito  Legarda  and  Senor  Don  Jose 
Luzuriaga.  The  introduction  into  the  legislature  of  representative 
Filipinos,  educated  and  able,  will  materiallv  assist  the  Commission  in 
its  work  by  their  intimate  knowledge  of  the  people  and  of  local  prej- 
udices and  conditions.  On  September  first,  also,  the  executive  branch 
of  the  insular  government  will  be  rendered  more  efficient  by  the  estab- 
lishment of  four  executive  departments.  There  will  be  a  department 
of  the  interior,  of  which  Commissioner  Dean  C.  Worcester  will  be 
head;  a  department  of  commerce  and  police,  of  which  Commissioner 
Luke  E.  Wright  will  be  the  head;  a  department  of  justice  and  finance, 
of  which  Commissioner  Henry  C.  Ide  will  be  the  head,  and  a  depart- 
ment of  public  instruction,  of  which  Commissioner  Bernard  Moses 
will  he  the  head.  The  foregoing  announcements  are  made  by  direc- 
tion of  the  Secretary  of  War. 

Since  the  above  was  written,  in  confirmation  of  the  statement  of  the 
President's  purposes  with  respect  to  the  people  of  these  Islands,  I  have 
this  morning  received  the  following  telegram  from  the  President  of 
the  United  States: 

Washington,  .juIi/  3 — 0.40  p-  m. 
Taft,  Manila: 

Upon  the  assumption  of  your  new  duties  as  civil  governor  of  the  Pliilippine 
Islands  I  have  great  pleasure  in  sendinj^  congratulations  to  you  and  your  associate 
commissioners  and  )ny  thanks  for  the  good  work  already  accomplished.  I  extend 
to  you  my  full  confidence  and  best  wishes  for  still  greater  success  in  th(!  larger 
responsibilities  now  devolved  ui)on  you,  and  the  assurance  not  only  for  myself  l)ut 
for  my  countrymen  of  good  will  for  the  people  of  the  Islands,  and  the  hope  that  their 
participation  in  the  government  which  it  is  our  purpose  to  develop  among  them, 
may  lead  to  their  highest  advancement,  hapi)iness,  and  prosperity. 

William  McKinley. 

277 


278  REPORTS    OF    THE    CIVIL    OOVERDMENT 

The  extent  of  the  work  Avhich  the  Commission  has  done  in  organizing 
civil  governments  in  towns  and  provinces  is  consideral)le,  but  its  scope 
and  etiVct  may  easily  be  exaggerated  by  those  not  fully  acquainted 
with  the  situation.  Twenty-seven  provinces  have  been  organized 
under  the  general  provincial  act;  but  it  has  not  been  possible  to  till 
the  important  office  of  supervisor  in  eight  or  nine  of  them  because  a 
supervisor  must  be  a  civil  engineer.  We  have  sent  to  America  for  com- 
petent persons,  whose  arrivakwe  look  for  this  month.  As  the  super- 
visor is  one  of  the  three  members  of  tlie  governing  provincial  l)oard, 
his  iibsence  necessarily  cripples  the  administration.  Of  the  27  prov- 
inces organized,  four,  possibly  iive  and  small  parts  of  two  others  in 
which  armed  insurrection  continues,  will  remain  under  the  executive 
jurisdiction  of  the  military  governor  and  commanding  general.  There 
are  10  provinces  or  districts  in  which  there  is  entire  freedom  from 
insurrection  which  the  Commission  has  not  had  time  to  organize.  Of 
the  unorganized  provinces  and  districts,  including  Mindoro  and  Para- 
gua,  the  latter  just  occupied  by  the  army,  there  are  four  that  are  not 
ready  for  civil  government.  In  the  organized  provinces  nearly  all 
the  towns  have  been  organized  under  the  municipal  code;  and  some 
towns  have  been  similarly  organized  in  unorganized  provinces.  It 
was  not  supposed  that  either  the  municipal  code  or  the  provincial 
government  act  would  form  perfect  governments,  though  it  was  pos- 
sible to  make  the  former  much  more  complete  than  the  latter,  for 
there  had  been  two  experiments  in  municipal  government  under  the 
administration  of  General  Otis  and  General  MacArthur  before  the 
Commission  began  its  legislative  work.  The  provincial  government 
act  was  tentative.  The  result  of  the  southern  trip  of  the  Commission 
was  a  substantial  amendment  and  there  will  doubtless  be  others. 
Government  is  a  practical,  not  a  theoretical,  problem;  and  the  success- 
ful application  of  a  new  system  to  a  people  like  this  must  l)e  brought 
about  by  observing  closely  the  operation  of  simple  laws  and  making 
changes  or  additions  as  experience  shows  their  necessity.  The  enact- 
ment of  the  law  in  its  first  form  and  appointments  under  it  are  but 
one  of  several  steps  in  a  successful  organization. 

The  conditions  under  which  the  municipal  and  provincial  govern- 
ments of  the  Islands  are  to  have  their  first  real  test  are  trying.  The 
four  years'  war  has  pauperized  many,  and  its  indirect  effect  in  destroy- 
ing the  habits  of  industry  of  those  who  have  been  prevented  from 
working  in  the  fields,  or  who  have  been  leading  the  irresponsible  life 
of  guerrillas  is  even  more  disastrous.  Not  only  war,  but  also  the  death 
from  disease  of  a  large  percentage  of  the  carabaos  which  are  indispen- 
sable to  the  cultivation  of  rice  and  are  greatly  needed  in  all  agriculture, 
has  largely  reduced  the  acreage  of  rice  and  other  staple  products. 
Then  the  pest  of  locusts  has  been  very  severe.  In  one  province,  and 
perhaps  more,  gaunt  famine  may  have  to  be  reckoned  with.  Poverty 
and  suffering  in  a  country  where  ladronismhas  always  existed  are  sure 
to  make  ladrones. 

With  the  change  made  to-day,  the  civil  governments  must  prepare 
to  stand  alone  and  not  depend  on  the  army  to  police  the  provinces  and 
towns.  The  concentration  of  the  army  in  larger  garrisons  where,_in 
cases  of  emergency  only,  they  can  be  called  on  to  assist  the  local  police 
may  be  expected;  but  the  people  must  be  enabled  by  organization  of 
native  police  under  proper  and  reliable  commanders  to  defend  them- 
selves against  the  turbulent  and  vicious  of  their  own  communities. 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  279 

The  withdrawal  of  the  army  from  the  discharge  of  quasi  civil  duties 
of  police  will  be  accompanied  also  b}'  the  ceasing-  of  the  jurisdiction 
of  military  commissions  to  try  ordinary  criminal  cases.  They  have 
been  most'usef  ul  in  punishing  and  repressing  crime.  We  have  enacted 
a  judiciary  law  and  appointed  judges  under  it  who  will  succeed  to  this 
work.  But  the  adoption  of  a  new  civil  code  of  procedure,  a  new 
criminal  code  and  code  of  procedure,  all  of  which  are  ready,  may  be 
delayed  somewhat  by  the  needed  public  discussion  of  them.  Until 
they  are  all  adopted,  we  shall  not  feel  that  the  chief  step  has  been 
taken  toward  securing  the  blessings  of  civil  liberty  to  the  people  of 
the  pacified  provinces,  the  protection  of  life,  liberty  and  property. 

The  difficulties  of  official  communication  between  provinces  on  the 
sea  and  between  towns  of  the  same  province  similarly  situated  must 
be  met  by  a  properly  organized  fleet  of  small  steamers  or  launches 
which  shall,  at  the  same  time,  assist  in  the  revenue  or  postal  service. 
Provincial  governments,  in  many  cases  without  such  means  of  com- 
municating with  their  numerous  towns,  are  greatly  impeded  in  their 
functions. 

Congress,  in  its  wisdom,  has  delayed  until  its  next  session  provision 
for  the  sale  of  public  lands,  of  mining  rights  and  the  granting  of  fran- 
chises. All  are  necessary  to  give  the  country-  the  benefit  of  American 
and  foreign  enterprise  and  the  opportunity  of  lucrative  labor  to  the 
people.  Commercial  railroads,  street  railroads,  mortgage-loan  com- 
panies or  land  banks  and  steamship  companies  only  await  Govern- 
ment sanction  to  spring  into  being.  These  may  remedy  the  poverty 
and  suffering  that  a  patient  people  have  nojv  to  bear. 

The  school  system  is  hardly  begun  as  an  organized  machine.  One 
thousand  American  teachers  will  arrive  in  the  next  three  months. 
They  must  not  only  teach  English  in  the  schools,  but  they  must  teach 
the  Filipino  teachers.  Schoolhouses  are  yet  to  be  built;  schoolrooms 
are  yet  to  be  equipped.  Our  most  satisfactory  ground  for  hope  of 
success  in  our  whole  work  is  in  the  eagerness  with  which  the  Philippine 
people,  even  the  humblest,  seek  for  education. 

Then  there  is  another  kind  of  education  of  adults  to  which  we  look 
with  confidence.  It  is  that  which  comes  from  observation  of  the  meth- 
ods by  which  Americans  in  office  discharge  their  duties.  Upon  Amer- 
icans who  accept  office  under  the  civil  government  is  imposed  the 
responsibility  of  reaching  the  highest  American  standard  of  official 
duty.  Whenever  an  American  fails;  whenever  he  allows  himself  to 
use  his  official  position  for  private  ends,  even  though  it  does  not  involve 
actual  defalcation  or  the  stealing  of  public  property  or  money,  he  is 
recreant  to  his  trust  in  a  far  higher  degree  than  he  would  be  were  he 
to  commit  the  same  offense  in  a  similar  office  at  home.  Here  heis  the 
representative  of  the  great  Repul^lic  among  a  people  untutored  in  the 
methods  of  free  and  honest  government,  and  in  so  far  as  he  fails  in  his 
duty,  he  vindicates  the  ol^jection  of  those  who  have  forcibly  resisted 
our  taking  control  of  these  Islands  and  weakens  the  claim  we  make  that 
we  are  here  to  secure  good  government  for  the  Philippines. 

The  operation  of  the  civil-service  Act  and  the  rules  adopted  for  its 
enforcement  have  been  the  subject  of  some  criticism;  but  I  think  that 
when  they  are  fully  understood,  and  when  the  Filipino,  in  seeking  a 
position  in  executive  ofiices  whore  English  is  the  only  language  spoken, 
fits  himself,  as  he  will  with  his  aptness  for  learning  languages,  in  Eng- 
lish, ^Q  will  have  nothing  to  complain  of  either  in  the  justice  of  the 


280  report;^  of  tiik  civil  GOVKRNMENT 

oxainination  and  itsmarkino^  or  in  the  equalit}'  of  salaries  between  him 
and  Americans  doino-  the  same  worlv.  The  civil-service  Act  is  the  bul- 
wark of  honesty  and  ethciency  in  the  government.  It  avoids  the  most 
marked  evil  of  American  politics,  the  spoils  system.  Without  it  suc- 
cess in  solving"  our  problem  would  be  entirely  impossible.  Complaints 
of  its  severity  and  its  unfortunate  operation  in  individual  instances  may 
o-ive  plausibility  to  attack  u],)on  it,  but  those  who  are  responsible  for 
appointments  can  not  be  blinded  to  the  fact  that  its  preservation  is 
absolutely  essential  to  the  welfare  of  these  Islands. 

If  I  have  understood  the  decision  of  the  Supreme  Court  in  the  recent 
so-called  Porto  Rico  cases,  the  question  of  what  duties  shall  be  levied  on 
imports  into  these  Islands  from  the  United  States  and  on  exports  from 
these  Islands  into  the  United  States  is  committed  to  the  discretion  of 
Cono-ress.  Without  assuming-  to  express  an  opinion  on  the  much- 
mooted  issue  of  constitutional  law  involved,  I  venture  to  say  that  the 
result  is  most  beneficial  to  the  people  of  these  Islands.  It  seems  to  me 
that  a  decision  that  the  same  tarifi'  was  in  force  in  these  Islands  as  in 
the  United  States,  and  must  always  be  so,  would  have  been  detrimental 
to  the  interests  of  the  Islands.  They  are  7,(>00  miles  from  the  coast  of 
the  United  States.  The  conditions  prevailing  in  them  are  as  different 
as  possible  from  those  in  the  United  States.  The  application  to  them 
of  a  high  protective  tariff  carefully  prepared  to  meet  trade  and  the 
manufacturing  conditions  in  the  United  States  would  have  been  a  great 
hardship.  It  is  true  that  to  sugar  and  tobacco  planters  would  have 
been  opened  a  tine  market,  but  it  would  have  greatly  reduced  all  trade 
between  the  Philippines  and  China  and  other  oriental  countries  and  all 
European  countries,  and  it  would  have  necessitated  a  heavy  internal 
tax  to  pay  the  expenses  of  the  central  government.  Now  the  people 
ma}^  reasonably  entertain  the  hope  that  Congress  will  give  them  a  tariff" 
here  suited  to  the  best  development  of  business  in  the  Islands,  and  may 
infer  from  the  liberal  treatment  accorded  in  its  legislation  to  Porto 
Rican  products  imported  into  the  United  States  that  Philippine  pro- 
ducts will  have  equally  favorable  consideration. 

The  finances  of  the  insular  government  are  at  present  in  a  satisfac- 
tory condition,  though  changes  in  laws  made  or  about  to  be  made  may 
affect  them  considerably.  There  is  now  in  the  insular  treasury  a  sum 
of  money  exceeding  $3,700,000  in  gold  unappropriated.  The  engi- 
neers in  the  Manila  harbor  work  have  been  authorized  to  make  con- 
tracts involving  a  liability  of  12,000,000  beyond  the  $1,000,000  already 
appropriated,  but  this  is  the  only  liability  of  the  government  and  it 
will  not  accrue  for  two  years  at  least.  The  insular  income,  which  is 
now  about  $10,000,000,  gold,  a  year,  is  likely  to  be  reduced  more  than 
$1,000,000  by  the  provision  of  the  provincial  act  which  applies  the 
proceeds  of  the  internal-revenue  taxes  to  the  support  of  the  provincial 
governments.  Moreover,  a  new  customs  tariff'  is  soon  to  be  put  in 
force,  the  immediate  result  of  which  may  be  to  reduce  the  total  amount 
of  duties  collected.  It  reduces  the  import  tax  on  necessities  and 
increases  it  on  luxuries  and  roughly  approximates,  as  nearly  as  a  tariff 
of  specific  duties  can,  to  a  purely  revenue  tariff  of  25  per  cent  ad 
valorem.  In  addition  to  this,  the  cost  of  the  insular  government  is 
bound  to  increase  as  the  establishment  of  peace  and  civil  government 
is  extended  through  the  Archipelago  and  the  skeleton  bureaus  and 
departments  now  recognized  in  the  law  are  enlarged  and  given  a 
normal  usefulness.     Still  the  increase  of  business  due  to  returning 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903,  281 

peace  and  prosperity  will  doubtless  keep  pace  with  the  needs  of  the 
government. 

The  conduct  of  the  civil  and  military  branches  of  a  military  govern- 
ment under  independent  hands  is  necessarily  a  delicate  matter.  It 
depends,  as  the  President  in  his  instructions  says,  upon  the  fullest 
cooperation  between  the  military  and  the  civil  arms,  and  I  am  glad  to 
be  able  to  say  that  I  believe  that  there  will  be  the  same  cooperation  in 
the  future  as  there  has  been  in  the  past;  that  the  possible  friction 
which  ma}'  arise  between  the  subordinates  of  the  respective  arms  will 
have  no  encouragement  from  those  in  whom  is  the  ultimate  responsi- 
bility. There  is  work  enough  and  to  spare  for  all  who  are  concerned 
in  the  regeneration  of  these  Islands. 

The  burden  of  the  responsibility  which,  by  taking  the  oath  this  day 
administered  to  me,  I  assume,  I  shall  not  dwell  upon,  except  to  say  that 
no  one,  I  think,  realizes  it  more  keenly  than  I  do.  While  I  am  pro- 
foundly grateful  to  the  President  of  the  United  States  for  the  personal 
trust  he  has  expressed  in  appointing  me  to  this  high  office,  it  is  with 
no  exultant  spirit  of  confidence  that  I  take  up  the  new  duties  and  new 
task  assigned  to  me.  I  must  rely,  as  I  do,  upon  the  cooperation, 
energy,  ability  and  fidelity  to  their  trust  of  those  with  w^hom  I  am  to 
share  the  responsibility  now  to  be  presented,  upon  the  sympathetic 
and  patriotic  patience  of  those  educated  Filipino  people  who  have 
already  rendered  us  such  tremendous  aid,  and  upon  the  consciousness 
that  earnest  efl'ort  and  honest  purpose,  with  a  saving  of  common  sense, 
have  in  the  past  solved  problems  as  new,  as  threatening  and  as  diffi- 
cult as  the  one  before  us. 

The  high  and  sacred  obligation  to  give  protection  for  property  and 
life,  civil  and  religious  freedom,  and  wdse  and  unselfish  guidance  in 
the  paths  of  peace  and  prosperity  to  all  the  people  of  the  Philippine 
Islands  is  charged  upon  us,  his  representatives,  b}^  the  President  of 
the  United  States.  May  we  not  be  recreant  to  this  charge  which,  he 
truly  sa3'S,  concerns  the  honor  and  conscience  of  our  country.  He 
expresses  the  firm  hope  that  through  our  "labors  all  the  inhabitants 
of  the  Philippine  Islands  may  come  to  look  back  with  gratitude  to  the 
day  when  God  gave  victory  to  American  arms  at  Manila  and  set  their 
land  under  the  sovereignty  and  protection  of  the  people  of  the  United 
States."  God  grant  that  in  spite  of  all  the  trials  and  perplexities,  the 
disappointments  and  difficulties,  with  which  we  are  sure  to  be  con- 
fronted, we  may  live  to  see  this  fervent  hope  made  a  living  fact  in  the 
hearts  of  a  patriotic  people  linked  within  the  indissoluble  ties  of  affec- 
tion to  our  common  and  beloved  country. 


lo  the  Senate  and  House  of  Representatwes : 

I  herewith  send  a  letter  from  the  Secretary  of  War  transmitting  the 
third  annual  report  of  the  Philippine  Commission  coverino-  the  year 
ending-  October  1,  1902,  and  the  laws  passed  by  the  Commission 
between  July  1,  1902,  and  October  27,  1902. 

I  call  3'our  special  attention  to  the  recommendations  contained  in 
this  letter  of  the  Secretar}'  of  War.  I  most  earnestlj^  feel  that  the 
enactment  of  the  measures  already  pending  in  your  body  for  the  better- 
ment of  the  Philippine  Islands  is  imperatively  demanded  by  the 
situation  in  those  islands  and  serious  calamity  may  come  from  failure 
to  enact  them.  Furthermore,  I  with  equal  earnestness  ask  yonv 
attention  to  the  recommendation  of  the  Secretary  of  War  in  the 
accompan3dng  letter  and  urge  its  adoption  so  that  the  sum  of  money 
therein  specified  ma}"  be  appropriated  for  the  uses  and  in  the  manner 
likewise  specified  in  order  that  the  present  distress  in  the  islands  may 
be  remedied. 


Theodore  Roosevelt. 


White  House,  January  7,  1903. 


War  Department, 

Washington^  January  6^  1903. 
The  President: 

I  have  the  honor  to  transmit  herewith  the  third  annual  report  of  the 
Philippine  Commission,  covering  the  year  ending  October  1,  1902. 
This  report  is  in  compliance  with  the  third  paragraph  of  the  Instruc- 
tions to  the  Philippine  Commission,  dated  April  7,  1900,  and  with 
section  86  of  the  act  entitled  "An  act  temporarily  to  provide  for  the 
administration  of  the  affairs  of  civil  government  in  the  Philippine 
Islands,  and  for  other  purposes,"  approved  July  1,  1902. 

Accompanying  the  report,  and  transmitted  with  it,  are  the  acts  of 
the  Philippine  Commission,  from  and  including  act  No.  425,  enacted 
July  2,  1902,  to  and  including  act  No.  493,  enacted  October  27,  1902. 

Section  86  of  the  act  of  Congress  above  cited  requires  that  these 
laws  shall  be  reported  to  Congress.  All  of  the  laws  enacted  by  the 
Commission  prior  to  that  act  have  already  been  reported  to  Congress. 

I  beg  to  ask  special  consideration  of  the  recommendations  of  the 
Commission,  all  of  which  have  my  hearty  approval. 

283 


284  REPORTS    OV    THE    CIVIL    OOVKUNMENT. 

It  seems  tc)  me  tliut  the  conditions  resulting-  from  the  destruction  by 
rinderpest  of  90  per  cent  of  the  carabaos,  the  draft  animals  of  the 
islands,  and  the  consequent  failure  of  the  rice  crop,  followed  ])y  an 
epidemic  of  cholera,  are  so  serious  and  distressing  as  to  call  for  action 
by  Congress  bej^ond  that  for  which  the  Commission  specifically  ask. 

The  removal  under  the  laws  of  Congress  of  export  duties  on  goods 
shipped  from  the  Philippines  to  the  United  States  has  materially 
reduced  the  revenues  of  the  island,  while  the  duties  collected  in  the 
United  States  upon  importations  from  the  Philippines,  which  under 
the  same  laws  were  to  be  turned  over  to  the  Philippine  treasury  and 
were  expected  to  make  good  the  deficit,  have  amounted  to  practically 
nothing.  At  the  same  time  the  decline  in  the  price  of  silver,  the  evils 
of  a  fluctuating  currency,  and  the  impoverishment  of  the  people,  have 
reduced  the  government  revenues  when  they  are  most  needed  for  relief 
of  the  people. 

I  think  the  occasion  for  relief  in  the  Philippines  is  now  greater  than 
it  was  in  Cviba  when  Congress  appropriated  $3,000,000  for  the  pay- 
ment of  the  Cuban  soldiers  out  of  the  Treasury  of  the  United  States, 
or  than  it  was  in  Porto  Rico  when  hundreds  of  thousands  of  dollars 
were  contributed  by  the  people  of  the  United  States,  and  more  than  a 
million  of  dollars  paid  out  of  the  National  Treasury  for  the  relief  of 
the  sufferers  from  the  hurricane  of  August,  1899. 

An  appropriation  of  not  less  than  $3,000,000  for  the  relief  of  the 
distress  in  the  Philippine  Islands  from  the  causes  which  I  have  men- 
tioned would  be  in  harmony  with  the  course  pursued  by  Congress 
toward  the  people  of  the  other  Spanish  islands  and  practical  evidence 
of  the  sincere  interest  that  the  people  of  the  United  States  take  in  the 
welfare  of  the  Philippine  people  and  of  the  kindly  and  generous  treat- 
ilient  which  they  are  to  receive.  Previous  experience  indicates  that 
such  an  appropriation  could  be  made  the  most  useful  by  giving  the 
Philippine  goA^ernment  discretion  to  apply  it,  in  such  proportions  as 
.they  deem  wise,  in  the  direct  purchase  and  distribution  or  sale  of  sup- 
plies, or  through  the  employment  of  labor  in  the  construction  of  gov- 
ernment wagon  roads,  railroads,  or  other  public  works. 
Ver}^  respectfully, 

Elihu  Koot, 

Secretary  of  War. 


REPORT  OF  THE  UNITED  STATES 
PHILIPPINE  COMMISSION. 


Philippine  Commission, 

Manila^  JVovejnber  1,  1902. 

Sir:  The  Philippine  Commission  begs  to  submit  this,  its  third 
annual  report,  for  the  year  ending  October  1,  1902.  In  previous 
reports  the  Commission  has  dealt  with  every  phase  of  the  conditions 
existing  in  the  islands,  and  the  steps  taken  by  it  or  members  of  the 
Government  for  their  improvement.  On  the  1st  of  September,  1901, 
the  civil  government  became  definitely  established,  with  a  civil  gov- 
ernor and  four  departments,  at  the  head  of  each  of  which  was  a  secre- 
tary. It  has  seemed  best  to  the  Commission,  in  view  of  this  organi- 
zation, that  the  governor  and  the  four  secretaries  should  each  make  a 
report  to  the  Commission  concerning  the  transactions  under  the  imme- 
diate executive  control  of  each,  the  governor  giving  an  account  of 
the  general  conditions  prevailing  in  the  islands  and  of  the  work  done 
by  the  bureaus  reporting  directly  to  him,  and  each  of  the  secretaries 
giving  an  account  of  the  work  done  by  the  bureaus  included  in  his 
department.  It  has  been  thought  wise  for  the  Commission  not  to  deal 
at  length  with  the  details  of  the  transactions  of  the  government  during 
the  past  3'^ear,  but  only  to  refer  to  the  general  conditions  and  to  certain 
subjects,  the  pressing  importance  of  which  may  reasonably  demand 
the  attention  of  Congress  at  this  session. 

The  insurrection  as  an  organized  attempt  to  subvert  the  authority  of 
the  United  States  in  these  islands  is  entirely  at  an  end,  and  the  whole 
Christian  Filipino  population,  with  the  exception  of  a  few  thousand 
of  persons  who  have  settled  in  the  Moro  country  in  isolated  towns, 
are  enjoying  civil  government  under  the  beneficent  provisions  of 
recent  Congressional  legislation  concerning  the  Philippineo.  Much 
remains  to  be  done  in  perfecting  the  civil  government,  in  marshalling 
the  forces  of  law  and  order  against  lawlessness  and  disturbances,  and 
in  teaching  the  people  of  the  Philippine  Islands  not  only  that  they 
have  rights  under  the  law,  but  also  that  they  can  not  hope  to  enjoy 
such  rights  unless  they  acquire  courage  and  independence  sufficient  to 
assert  them  against  attempts  by  their  fellow  Filipinos  to  perpetuate  the 
23181—04 19  285 


386  reports;  of  the  civil  government 

system  of  "caciqueism,"  or,  liberally  translated,  "hossism."  by  which 
they  have  heretofore  been  complotely  governed,  and  under  which  they 
have  en303'ed  very  little  of  personal  liberty. 

Comparatively  few  of  the  Filipinos  who  have  been  heretofore  inter- 
ested in  politics  as  insurrectos  or  otherwise  have  felt  an  interest  in 
teaching  the  common  people  their  individual  rights  in  respect  to  personal 
liberty,  propert}^,  or  the  pursuit  of  happiness.  This  work  of  instruc- 
tion in  individual  rights  will  require  man}^  years  before  the  country  is 
rid  of  the  feudal  relation  of  dependence  which  so  many  of  the  common 
people  now  feel  toward  their  wealthy  or  educated  native  leaders  and  of 
the  ideas  underl3^ing  this  relation.  It  is  in  the  existence  of  this  relation 
that  much  of  the  difficulty  in  the  labor  problem  in  these  islands  finds  its 
source.  The  laborers  under  the  Spanish  regime  were  accustomed  to  do 
their  work  at  the  bidding  of  some  superior,  not  from  a  motive  of 
earning  wages,  but  in  obedience  to  the  order  of  one  entitled  to  command; 
and  there  rests  upon  this  government  and  upon  the  American  Govern- 
ment the  duty  of  teaching  the  Filipino  laborers  the  independence  and 
dignity  of  labor  under  a  free  government,  before  they  may  do  their 
best  work  and  contribute  as  much  as  they  should  contribute  to  the 
development  of  their  country.  The  organization  of  labor  into  unions 
in  Manila,  while  brought  about  by  a  crack-brained  insurrecto  agitator 
for  political  purposes  only,  will,  we  hope,  lead  to  an  organization  that 
may  have  much  to  do  with  inculcating  this  lesson. 

No  great  w^ork  of  organizing  a  government  and  establishing  new 
conditions  has  ever  met  with  more  obstacles  than  the  one  upon  which 
the  Philippine  government  is  at  present  engaged.  The  six  years  of 
war  to  which  these  islands  have  been  subjected  have  naturally  created 
a  class  of  restless  men  utterly  lacking  in  habits  of  industry,  taught  to 
live  and  prey  upon  the  country  for  their  support  by  the  confiscation 
of  food  and  supplies  as  a  war  measure,  and  regarding  the  duties  of  a 
laborer  as  dull  and  impossible  for  one  who  has  tasted  the  excitement 
of  a  guerrilla  life.  Even  to  the  man  anxious  to  return  to  agricultural 
pursuit  the  conditions  existing  present  no  temptation.  By  the  war 
and  by  the  rinderpest,  chiefly  the  latter,  the  carabaos,  or  water  buf- 
faloes, have  been  reduced  to  10  per  cent  of  their  former  number.  The 
chief  food  of  the  common  people  of  these  islands  is  rice,  and  the  cara- 
bao  is  the  indispensable  instrument  of  the  people  in  the  cultivation  of 
rice  as  they  cultivate  it,  as  it  is  also  the  chief  means  of  transportation 
of  the  tobacco,  hemp,  and  other  crops.  The  loss  of  the  carabaos  has 
reduced  the  production  of  rice  in  the  islands  75  per  cent,  and  the  25 
per  cent  remaining  is  in  imminent  danger  from  the  locusts  which,  very 
destructive  in  the  Visayan  Islands  last  year,  are  this  year  sweeping 
over  the  rice  fields  of  Luzon  and  threaten  to  destroy  utterly  the  crops 
of  those  provinces  of  Luzon  which  may  fairly  be  considered  the  gran- 
ery  of  the  Philippine  Islands. 


OP    THE    PHILIPPINE    ISLANDS,   1900-1903.  287 

So  short  is  the  rice  crop  and  so  high  has  the  pr  ice  of  rice  become, 
estimated  in  the  Mexican  dollar — due  both  to  the  scarcity  of  rice  and 
the  fall  of  silver — that  the  Commission  has  deemed  it  necessary  within 
the  last  few  days  to  take  the  steps  of  purchasing  300,000  piculs  (1371 
pounds  to  the  picul)  of  rice,  to  be  sold  at  cost  in  provinces  where  the 
price  of  rice  furnished  through  the  ordinary  commercial  channels  shall 
be  exorbitant.  The  price  of  carabaos  has  risen  from  $20  Mexican  to 
^200  Mexican  apiece.  The  cholera,  beginning  in  Manila  in  March  of 
this  year,  has  raged  in  the  various  provinces  and  has  not  yet  disap- 
peared. Vigorous  measures  were  adopted  to  reduce  its  spread  in  the 
city  of  Manila  and  elsewhere,  but  it  will  probably  claim  in  the  archi- 
pelago 100,000  victims.  It  has  greatly  interfered  with  agriculture, 
and  the  sanitary  restrictions,  which  were  enforced  with  greater  or  less 
rigor  throughout  the  islands  have  incommoded  a  people  who  do  not 
S3^mpathize  with  or  understand  their  necessity.  The  suspicious  timidity 
and  superstition  of  these  people  were  aroused  by  the  ravages  of  cholera 
to  the  point  of  attributing  the  disease  to  poisonous  powders  dropped 
into  wells  by  American  soldiers  for  the  purpose  of  destroying  the 
entire  populace,  and  the  quarantine  regulations  were  regarded  by  the 
more  ignorant  as  a  manifestation  of  hostility  to  the  people  by  the 
American  Government. 

The  Filipino  people  of  the  better  class  have  received  the  passage  of 
the  Philippine  act  with  great  satisfaction.  The  provision  for  the 
legislative  assembly  has  attracted  much  attention,  and  its  passage  has 
been  interpreted  as  an  earnest  of  the  desire  of  the  United  States 
Government  to  test  the  governing  capacity  of  the  people  and  of  the 
sincerity  of  its  promises  to  extend  to  them  self-government  as  rapidly 
as  they  shall  show  themselves  fit  for  it.  The  extremists,  of  course, 
desire  two  popular  legislative  bodies  instead  of  one,  and  others  not  so 
extreme  are  anxious  that  the  legislative  assembly  shall  be  esta])lished 
immediately  after  the  taking  and  publication  of  the  census  instead  of 
two  years  thereafter.  The  Commission  feels  that  it  will  be  in  a  much 
better  position  to  make  recommendations  upon  the  point  of  expediting 
the  holding  of  the  assembly  after  the  census  has  been  taken.  The 
coming  year,  under  the  trying  circumstances  which  now  prevail,  will 
show  how  much  we  may  depend  upon  the  conservative  and  law-abiding 
character  of  the  controlling  elements  of  the  Filipino  people. 

The  fluctuations  in  the  value  in  gold  of  the  Mexican  dollar  have 
borne  heavily  on  the  common  people.  Wages  are  in  silver  and  they 
have  not  advanced  with  the  cost  of  living,  for  the  merchants  and 
tradesmen  much  more  readily  make  their  prices  respond  to  the  fluctu- 
ations in  the  value  of  the  Mexican  dollar  than  do  those  dependent  on 
wages  and  salaries  for  a  living.  The  fluctuations  in  the  value  of  silver 
have  greatly  interfered  with  business.  The  evils  attendant  on  such 
fluctuations  are  fully  set  forth  in  the  report  of  the  secretary  of  finance 


288  RKPi^UTS^    OK    THE    CIVIL    GOVERNMENT 

and  justice.  We  urge  with  as  much  eai'nostness  as  possible  the  neces- 
sity for  immediate  action  by  Congress  in  establishing  a  gold  standard, 
and  we  recommend  the  adoption  of  the  plan  which  was  recommended 
by  the  Commission  in  its  last  year's  report.  The  theory  that  the  only 
persons  prejudiced  by  the  fluctuations  in  silver  values  are  the  civil 
servants  of  the  insular  government  is  wholly  unfounded.  Their  con- 
venience is  somewhat  affected  it  is  true,  but  the  present  system,  by 
which  the  official  rate  is  changed  to  meet  the  commercial  rate  every 
ten  days,  much  reduces  their  losses  from  the  fluctuation,  and  if  the  only 
inconvenience  caused  by  the  fall  in  silver  was  to  them,  we  should  not 
feel  called  upon  in  this  report  to  recommend  a  change.  It  is  the 
inconvenience  and  suffering  and  injustice  done  to  the  common  people 
and  to  the  merchants  and  to  the  conduct  of  business  on  safe  principles 
that  require  us  to  speak  with  as  much  emphasis  as  we  can  command. 

The  business  of  those  islands  is  much  more  affected  by  exchange  on 
London  and  New  York  than  by  that  on  Hongkong,  Singapore,  and 
Shanghai.  The  importations  are  largely  from  Europe  and  America. 
The  merchants  of  Manila  are  not  alone  in  their  complaints  against  the 
effect  of  the  silver  standard  on  business.  Their  brethern  of  Singa- 
pore and  Hongkong  and  of  all  the  ports  of  China  complain  bitterly  of 
the  impossibility  of  carrying  on  business  on  wise  and  conservative  lines 
as  long  as  the  prices  of  articles  are  to  be  subjected  to  such  violent 
fluctuations  as  have  affected  the  value  of  Mexican  dollars  in  the  last 
year,  and  seek  to  avoid  loss  as  much  as  possible  by  making  contracts 
and  doing  business  on  a  gold  basis.  The  insular  government  of  the 
Philippine  Islands  has  itself  lost  $950,000  in  gold  value  during  the  last 
year  from  the  fall  of  silver,  changing  the  expected  surplus  into  a  deficit. 

First.  We  respectfully  urge  that  it  is  the  duty  of  the  American 
Government  to  secure  to  the  Philippine  people  as  stable  a  currency  as 
that  which  is  used  by  the  people  of  the  United  States;  and  we  are  con- 
fident that  this  can  be  accomplished  with  a  minimum  of  risk  to  the 
Treasury  of  the  United  States  and  the  treasury  of  the  Philippine 
Islands  if  the  plan  already  recommended  be  adopted.  A  banking  law 
with  power  to  authorize  the  issue  of  paper  currency  on  good  secui'ity 
is  very  badly  needed  and  should  be  included  in  any  plan  for  relief  of 
the  monetary  situation. 

Second.  We  urge  the  reduction  of  the  duties  imposed  on  goods  and 
merchandise  imported  into  the  United  States  from  the  Philippine 
Islands  so  as  to  make  them  not  more  than  25  per  cent  of  the  duties 
imposed  by  the  Dingley  law.  The  reduction  of  only  25  per  cent,  and 
the  absurdl}'  small  effect  of  that  reduction  upon  the  trade  between  the 
islands  and  the  United  States,  shown  in  the  collection  of  little  more 
than  $11,000  of  duties  in  five  months,  demonstrates  that  if  any  benefit 
at  all  is  to  be  conferred  upon  the  Philippine  Islands  by  such  action, 
the  percentage  of  reduction  must  be  largely  increased.     We  feel  con- 


UF   THE    PHILIPPINE    ISLANDS,   1900-1903.  289 

fident  that  a  reduction  of  75  per  cent  will  not  result  in  a  dumping  upon 
the  American  market  of  either  tobacco  or  other  commodities  so  as 
perceptibly  to  affect  that  market;  while,  on  the  other  hand,  the  ability 
to  sell  in  the  markets  of  the  United  States  will  be  of  the  greatest 
encouragement  to  the  woefully  depressed  agriculture  of  the  Philippine 
Islands,  under  the  conditions  which  we  have  described.  The  reduc- 
tion of  25  per  cent,  instead  of  being  an  aid  to  us  in  winning  the  good 
will  of  the  Philippine  people,  if  it  is  not  followed  now  by  further 
reductions,  will  lead  them  to  believe  that  we  are  merely  going  through 
the  form  of  a  concession,  which  amounts  in  fact  to  no  concession  at 
all;  that  the  United  States  is  merely  "keeping  the  word  of  promise 
to  the  ear  and  breaking  it  to  the  hope." 

We  think  that  a  50  per  cent  reduction  will  not  give  any  substantial 
relief,  and  that  nothing  short  of  75  per  cent  will  accomplish  a  useful 
purpose.  It  is  a  mistake  to  suppose  that  the  severance  of  these  islands 
from  Spain  has  made  no  difference  in  the  markets  to  which  their 
tobacco  and  sugar  growers  may  look.  On  the  contrary,  with  the  sepa- 
ration from  Spain,  the  sugar  and  tobacco  growers  have  been  deprived 
of  markets  which  were  of  great  assistance  to  them,  and  it  seems  only 
fair  and  just  that  the  United  States  should  substitute  its  own  markets 
for  the  Spanish  markets. 

Third.  Another  matter  which  we  desire  to  call  to  your  attention, 
and  through  you,  if  it  meets  with  your  approval,  to  that  of  Congress, 
is  the  burdensome  restrictions  upon  the  investment  of  capital  in  lands 
and  in  mines  in  these  islands.  As  the  Government  owns  65,000,000  of 
acres  out  of  70,000,000  in  the  archipelago,  there  is  substantially  no 
danger  that  the  ownership  of  land  here  can  be  centered  in  a  few  indi- 
viduals or  corporations  if  the  amount  owned  by  any  one  individual 
owner  or  corporation  is  limited  by  law  to  20,000  or  25,000  acres.  The 
government  of  the  islands  is  land  poor,  and  the  sale  of  land  to  individ- 
uals and  corporations  who  will  come  in  and  invest  their  money  in 
improving  it  is  the  greatest  boon  that  could  happen,  not  only  to  the 
Government,  but  to  the  people  themselves.  The  requirements  that 
no  corporation  shall  own  more  than  2,500  acres  stops  absolutely  the 
investment  of  new  capital  in  the  sugar  industry  and  in  the  tobacco 
industry.  It  takes  away  any  hope  of  bringing  prosperity  to  these 
islands  by  the  extending  of  the  acreage  in  the  cultivation  of  these  two 
important  products  of  the  archipelago.  It  very  much  interferes  with 
the  investment  of  capital  in  railroad  enterprises,  because  they  are  nat- 
urally connected  with  the  possibilities  of  transportation  of  sugar  and 
tobacco  from  the  interior  to  seaports.  It  is  not  too  much  to  say  that 
there  will  be  found  in  the  long  run  to  be  no  greater  obstacle  to  the 
permanent  improvement  of  economic  conditions  here  than  the  present 
restrictions  upon  the  amount  of  land  that  can  be  held  by  a  corporation 
or  individual.     If  an  absolute  sale  of  such  large  amounts  to  one  cor- 


290  REPORTS    OF    THE    CIVIL    GOVERNMENT 

poRition  as  25,000  acres  is  objected  to,  then  it  would  greatly  aid  in 
securing  the  investment  of  capital  if  leases  of  30,000  acres  for  fifty, 
sixty,  or  seventy  years  could  be  granted  to  a  corporation  or  individual. 

There  are  also  strong  reasons  for  urging  that  the  requirement  that  no 
person  shall  own  an  interest  in  two  mining  claims  should  be  repealed. 
It  will  paralyze  all  enterprise  and  take  away  from  prospecting  capi- 
talists all  interest  in  the  mineral  wealth  to  be  found  here,  unless  some 
method  of  evading  the  restriction  can  be  devised.  The  demoralizing 
effect  upon  a  whole  community  of  the  nonenforcement  or  evasion  of 
unwise  laws  need  not  be  dwelt  upon. 

Fourth.  We  desire  to  urge  that  all  the  bonds  authorized  to  be 
issued  by  the  Philippine  government,  for  internal  improvements  or 
otherwise,  shall  be  made  free  from  State,  county,  and  municipal  taxes 
in  the  United  States.  The  government  which  is  being  carried  on 
here  is  an  experiment  by  the  United  States  in  a  new  field,  and  taxes 
upon  the  bonds  which  are  issued  to  carry  on  the  work  of  improve- 
ment here  are  an  interference  with  this  work  and  with  an  important 
agency  of  the  United  States.  Congress  has  not  deemed  it  proper  to 
guarantee  the  payment  of  the  bonds,  which  would  have  much  reduced 
the  interest  to  be  paid  on  them,  but  if  it  will  give  to  the  bonds  the 
exemption  from  taxation  above  mentioned,  the  insular  government 
will  be  able  to  float  them  at  a  reasonable  rate.  This  exemption  has 
been  provided  for  the  bonds  to  be  issued  in  the  purchase  of  the  friars' 
lands;  and  we  can  not  see  why  any  distinction  should  be  made  between 
those  bonds  and  bonds  issued  by  the  Philippine  government  for  other 
reforms  and  improvements  in  the  islands. 

It  will  be  found,  should  we  be  obliged  to  issue  bonds  subject  to 
State,  county,  and  municipal  taxes,  that  not  one  dollar  of  value  will 
probably  be  added  to  the  personal  property  actually  taxed  in  any  State 
by  reason  of  declared  ownership  of  such  bonds;  and  therefore  by  giving 
such  exemption  as  we  ask  not  one  dollar  will  be  withdrawn  from  the 
taxable  property  in  a  State,  county,  or  municipality  in  the  United 
States.  With  such  exemption,  however,  administrators,  trustees,  and 
public  corporations  like  banks,  trust  companies,  and  loan  companies, 
whose  investments  are  continually  subject  to  the  examination  of  the 
public  assessor,  will  be  able  to  invest  and  hold  the  bonds  free  of  taxa- 
tion, and  will  make  a  market  for  them  which  will  insure  their  sale  at 
a  reasonably  low  rate  of  interest. 

The  questions  growing  out  of  the  friars'  lands,  and  of  the  former 
relations  of  the  Roman  Catholic  Church  to  the  government  of  these 
islands  under  the  Spanish  regime,  which  were  made  the  subject  of 
negotiation  on  the  visit  of  the  civil  governor  to  Rome  between  him 
and  the  head  of  the  Catholic  Church,  having  been  referred  for  further 
discussion  and  possible  solution  to  conferences  between  the  apostolic 
delegate  of  the  Pope  and  the  civil  governor  in  Manila,  are  to  be  taken 


OV    THE    PHILIPPINE    ISLANDS,    1900-1903.  291 

up  during  the  coming  winter.  The  civil  governor  has  been  advised 
by  a  letter  from  Archbishop  Giambattista  Guidi  of  his  appointment 
as  apostolic  delegate  and  of  his  intention  to  visit  the  Philippine 
Islands.  He  will  arrive  in  Manila  about  the  20th  of  November,  and 
soon  after  that  date  the  negotiations  will  be  begun. 

The  Commission  does  not  concur  in  the  view  that  it  would  be  wise 
to  admit  Chinese  unskilled  labor  into  these  islands.  The  objections  to 
such  a  policy  are  sufficiently  set  forth  in  the  report  of  the  civil  gov- 
ernor to  the  Commission,  and  do  not  require  further  elaboration.  The 
Commission  does  not  concur  in  the  view  that  there  will  not  be  a  good 
supply  of  labor  from  the  Filipino  people.  It  believes  that  as  conditions 
become  more  settled,  as  the  Filipino  labor  is  better  organized,  as  the 
Filipino  people  are  taught  the  independence  and  dignity  of  labor,  the 
supply  and  efficiency  of  the  Filipino  laborers  will  become  much  more 
satisfactory  than  they  are  to-day.  The  Commission  is  of  opinion,  how- 
ever, that  there  are  not  sufficient  skilled  laborers  among  the  Filipinos 
to  meet  the  emergencies  in  the  constructions  immediately  necessary 
for  the  development  of  the  islands.  It  believes  that  shipyards  and 
other  industrial  enterprises  would  be  established  here  were  there  a 
supply  of  skilled  labor.  Even  if  it  were  more  expensive  than  the  labor 
of  the  United  States,  these  islands  might  successfully  supply  domestic 
needs  in  shipbuilding.  This  relief  thus  recommended  need  only  be 
temporary.  The  introduction  of  a  limited  number  fixed  by  Congress 
of  skilled  laborers,  under  bond  by  their  future  employers  that  they 
should  be  returned  to  China  in  five  years,  and  that  while  here  a  Filipino 
apprentice  should  be  employed  for  every  Chinaman  admitted  and 
employed,  would  secure  after  five  years  a  sufficient  number  of  skilled 
laborers  among  the  Filipinos  not  to  require  further  Chinese  assistance. 
We  think  that  the  details  of  such  restrictions  might  safely  be  left  to 
the  Commission,  and  that  the  Commission  might  be  authorized  to 
impose  a  small  head  tax,  not  exceeding  $50,  on  each  Chinaman  so 
admitted,  to  reimburse  the  government  for  the  expenses  of  supervi- 
sion and  enforcement  of  the  restrictions. 

We  respectfully  urge,  therefore: 

1.  The  establishment  of  a  gold  standard  in  these  islands  upon  the 
plan  recommended  by  the  Commission  in  its  report  of  last  year,  and 
of  banking  corporation  empowered  to  issue  circulating  bank  notes 
under  proper  safeguards. 

2.  The  reduction  of  at  least  75  per  cent  of  the  Dingley  rates  of 
duties  upon  goods  imported  into  the  United  States  from  the  Philippine 
Islands. 

3.  An  amendment  of  the  Philippine  act  so  that  the  limit  upon  lands 
which  may  be  sold  to  or  held  by  individuals  or  corporations  from  the 
public  domain  shall  be  increased  from  1,024  hectares  to  25,000  acres 
or,  in  the  alternative,  so  that  the  government  shall  be  given  the  power 


292  REPORTS    OF   THE    CIVIL    GOVERNMENT. 

to  lease  for  sixty  years  upon  competitive  bidding  tracts  from  the 
public  land  aggregating  in  any  individual  or  corporate  lessee  not  more 
than  30,000  acres. 

4.  That  the  Philippine  act  be  amended  by  repealing  the  limitation 
which  forbids  an  individual  or  corporation  from  holding  an  interest  in 
more  than  one  mining  claim. 

5.  That  all  bonds  issued  by  the  insular  government  under  the 
authority  of  the  Philippine  act  shall  be  free  from  State,  county,  and 
nuinicipal  taxation  in  the  United  States. 

6.  That  an  amendment  be  made  to  the  Chinese-exclusion  act  giving 
power  to  the  Government  by  law  to  admit  a  fixed  and  limited  number 
of  Chinamen  into  the  Philippine  Islands,  who  are  certified  to  be  skilled 
laborers,  on  the  bond  of  the  employer  that  for  every  Chinese  skilled 
laborer  employed  he  will  employ  a  Filipino  apprentice,  and  that  he 
will  return  the  Chinese  skilled  laborer  thus  introduced  within  five 
years  after  his  admission  to  the  country,  and  that  he  shall  pay  a  head 
tax  of  not  exceeding  $50  for  each  Chinaman  so  admitted,  to  the  insular 
government,  to  meet  the  expenses  incident  to  the  enforcement  of  these 
restrictions. 

We  beg  to  submit  herewith  the  reports  of  the  civil  governor  and  of 
the  heads  of  the  four  departments,  together  with  the  laws  of  the  Com- 
mission passed  since  its  last  report,  for  transmission  to  Congress  in 
accordance  with  law. 

Very  respectfully,  Wm.  H.  Taft,  Ghairmcm. 

Dean  C.  Worcester. 
Henry  C.  Ide, 
Per  W.  H.  T. 

Bernard  Moses. 
T.  H.  Pardo  de  Tavera. 
B.  Legarda. 
The  Secretary  of  War, 

Washington,  D.  C. 

Note. — Commissioners  Luke  E.  Wright  and  Jos6  R.  de  Luzuriago, 
being  absent  from  Manila,  do  not  ^oin  in  this  report. 


REPORT  OF  THE  CIVIL  GOVERNOR. 


Manila,  N'ovemler  1,  190'2. 
Gentlemen:  I  have  the  honor  to  submit  a  report  to  you  on  the 
general  conditions  in  the  islands  and  in  respect  to  the  bureaus  which 
by  law  are  under  my  direct  supervision,  as  well  as  those  which  are  in 
the  department  of  commerce  and  police,  and  which,  in  the  absence  on 
leave  of  Vice-Governor  Wright,  the  secretary  of  commerce  and  police, 
are  temporarily  also  under  my  supervision.  The  report  of  the  Com- 
mission of  last  year  upon  the  subjects  treated  in  this  report  covered  a 
period  ending  the  15th  of  October,  1901,  and  this  report  will,  unless 
otherwise  specified,  cover  the  year  ending  the  1st  of  October,  1902. 

GENERAL   CONDITIONS. 

When  our  last  report  was  submitted  there  was  insurrection  in  the 
province  of  Batangas,  where  the  insurgent  forces  were  commanded 
by  General  Malvar,  and  in  the  adjacent  provinces  of  Tayabas  and 
Laguna;  in  the  province  of  Samar,  where  the  insurgent  forces  were 
commanded  by  General  Lukban;  in  Cebu,  where  the  insurgent  forces 
were  under  the  insurgent  leaders  Climaco  and  Maxilom;  in  Bohol, 
where  the  insurgent  forces  were  commanded  by  the  insurgent  leader 
Samson;  and  in  the  island  of  Mindoro.  Vigorous  campaigns  were 
begun  in  November  and  December  by  General  Bell,  in  Batangas, 
Laguna,  Tayabas,  and  Mindoro,  by  General  Smith  in  Samar,  and  by 
General  Hughes  in  Cebu  and  Bohol.  In  November  and  December  the 
insurgents  in  Cebu  and  Bohol  surrendered,  and  conditions  of  peace 
were  so  completely  established  that  the  Commission  soon  after  received 
the  province  of  Cebu  from  the  military  authorities,  and  by  act  num- 
bered 322,  passed  December  20,  1901,  restored  the  civil  government 
in  that  province  to  take  effect  January  1,  1902;  in  Bohol  the  province 
was  delivered  over  to  the  Commission  early  in  1902,  and  the  Commis- 
sion, by  act  of  March  3,  1902,  restored  civil  government  there  to  take 
effect  April  1,  1902.  General  Lukban,  in  Samar,  was  captured  in 
February,  1902,  and  the  entire  force  of  insurgents  in  that  island  under 
General  Guevara  surrendered  in  April  following. 

293 


294  RErORTS    OF    THE    CIVIL    GOVERNMENT 

By  an  act  passed  June  17,  1903,  No.  419,  the  Commission  organized 
the  province  of  Siimar,  and  established  ci\'il  government  there.  In 
April  of  1902,  General  Malvar  surrendered  with  all  his  forces  in  Ba- 
tangas,  and  b}^  act  passed  June  23, 1902,  the  Commission  restored  civil 
government  to  that  province  to  take  effect  July  4,  1902.  By  act  No. 
424,  enacted  July  1,  1902,  the  province  of  Laguna  was  organized  into 
a  civil  government.  This  completed  the  organization  of  all  the  prov- 
inces in  which  insurrection  had  been  rife  during  the  latter  part  of 
19(»1,  except  Mindoro.  There  were,  in  addition,  certain  tracts  of  ter- 
ritory occupied  by  Christian  Filipinos  that  had  not  received  civil 
government,  either  because  of  the  remoteness  of  the  territory  or  the 
scarcity  of  population.  By  act  No.  337  the  province  of  Nueva  Viscaya 
was,  on  January  28, 1902,  given  a  civil  government.  This  province  is 
situated  in  the  northern  center  of  Luzon,  at  the  headwaters  of  the 
Caga3'an  River.  It  is  quite  mountainous,  has  about  60,000  non- 
Christian  inhabitants  and  about  16,000  Christian  Filipinos.  It  has  a 
delightful  climate,  and  in  the  vallej^s  there  is  great  richness.  The 
fruits  and  vegetables  of  the  temperate  zone  grow  quite  luxuriantly 
there. 

On  May  28,  1902,  the  Commission  organized  the  province  of 
Lepanto-Bontoc,  also  a  mountainous  province  in  the  north-central  part 
of  Luzon  occupied  wholl}^  by  Igorrotes,  and  for  which  the  same  kind 
of  a  government  as  that  of  the  province  of  Bengnct  was  established 
by  act  No.  410.  The  districts  of  Infanta  and  Principe  and  the  island 
of  Polillo  are  on  the  east  coast  of  Luzon,  with  very  few  towns,  very 
sparsely  settled,  and  at  remote  distances  from  Manila.  It  seemed  wisest 
to  include  them  in  the  province  of  Tayabas,  which  reaches  from  the 
China  Sea  on  one  side  across  to  the  Pacific  on  the  other,  and  which  has 
the  towns  of  Mauban  and  Antimonan  on  the  Pacific  coast.  These  are 
the  towns  which  the  people  of  Infanta  and  Principe  and  Polillo  look  to 
as  their  bases  of  supplies  when  they  buy  anything,  and  as  the  places 
where  they  sell  what  they  have  to  sell.  By  act  No.  417,  therefore, 
passed  June  12, 1902,  these  three  districts  were  included  in  the  province 
of  Tayabas. 

The  province  of  Paragua,  including  the  north  half  of  the  island  of 
Paragua  and  the  Cuyos  and  Calamianes  groups  of  small  islands  to  the 
eastward,  were  embraced  in  a  province  known  as  the  province  of  Para- 
gua by  an  act  passed  June  23,  1902,  numbered  422.  The  island  of 
Mindoro,  in  which  early  in  the  year  all  the  insurgents  had  been  cap- 
tured or  had  surrendered,  was  by  act  of  June  23,  1902,  act  No.  423, 
incorporated  with  the  island  of  Marinduque  in  the  province  of  the 
latter  name.  In  this  way  all  the  territory  occupied  by  the  Christian 
Filipinos,  except  a  small  district  of  Dapitan,  the  town  of  Zamboanga, 
the  town  of  Cottabato,  and  the  town  of  Davao,  all  in  the  island  of 
Mindanao,  was  brought  under  civil  government.     In  respect  to  the 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  295 

last-named  district  and  isolated  towns,  which  are  so  widely  separated, 
and  which  have  so  small  a  population  as  to  make  their  organization 
into  a  province  under  the  provincial  law  impossible,  the  Commission 
has  taken  no  definite  steps  excej)t  to  organize  the  Filipinos  of  Zam- 
boanga  into  a  municipal  corporation  under  the  municipal  code.  They 
are  generally  under  the  control  of  the  military  commander  of  the 
Seventh  Separate  Brigade,  which  includes  Mindanao,  and  can  only  be 
provided  for  in  a  comprehensive  law  for  a  civil  or  civil-military 
government  of  Mindanao. 

The  question  what  shall  be  done  with  respect  to  Mindanao  is  one 
which  has  not  been  definitely  decided,  first,  because  so  much  has  had  to 
be  done  with  respect  to  the  northern  and  Filipino  provinces,  and,  sec- 
ond, because  at  present  there  is  an  unsettled  condition  in  the  Lake  Lanao 
country.  The  hostility  to  the  Americans  does  not  reach  beyond  the 
Lake  Lanao  Moros.  The  Moros  of  the  Jolo  group,  of  Zamboanga,  and 
of  the  Rio  Grande  de  Mindanao  Valley  are  all  quiet,  and  all  entirely 
willing  to  submit  to  American  supervision.  It  is  very  possible  that  an 
arrangement  can  be  brought  about  by  which  the  Sultan  of  Jolo  can  be 
induced  to  part  with  such  rights  as  he  claims  to  have  in  the  Jolo  Archi- 
pelago, and  that  in  this  way  questions  which  now  present  very  perplex- 
ing difficulties  with  respect  to  ownership  of  privileges,  rights,  and  lands 
may  be  obviated.  The  reports  of  General  Davis,  which  are  included  in 
General  Chaffee's  annual  report,  are  full  of  most  interesting  informa- 
tion, and  must  be  carefully  considered  before  a  permanent  arrangement 
shall  be  made  for  the  administration  of  that  part  of  the  Philippine 
Archipelago.  Meantime,  I  think  it  is  wiser  on  the  part  of  the  Com- 
mission to  postpone  the  consideration  of  the  Moro  question  until  we 
have  passed  legislation  to  meet  needs  that  are  more  pressing  through- 
out the  northern  part  of  these  possessions  of  the  United  States,  For 
a  great  many  years  to  come  there  will  be  no  question  of  popular  gov- 
ernment in  the  Moro  country;  the  Moros  do  not  understand  popular 
government,  do  not  desire  it,  and  are  entirely  content  with  the  co.itrol 
by  their  dattos.  Possibly  far  in  the  future  the  control  by  dattos  will 
cease.  There  is  room  for  material  and  industrial  development  among 
the  Moros,  and  with  their  material  improvement  may  come  a  change 
in  their  political  views.  For  the  present,  however,  it  is  necessary  only 
to  provide  a  paternal,  strong,  but  sympathetic  government  for  these 
followers  of  Mohammed. 

GENERAL  CONDITIONS  OF  THE   FILIPINO   PROVINCES. 

The  civil  government  has  assumed  responsibility  for  the  preserva- 
tion of  order  and  the  maintenance  of  law  throughout  the  Christian 
Filipino  territory  of  this  archipelago  at  a  time  when  the  material  con- 
ditions are  most  discouraging  and  present  every  conceivable  obstacle 


296  REPORTS    OK    THE    CIVIL    OOVF.RNMENT 

to  the  successful  administration  of  the  affairs  of  6,000,000  or  7,000,000 
people.  The  war  of  six  years  since  1896  has  greatly  interfered  with 
the  regular  pursuit  of  agriculture,  which  is  almost  the  only  source  of 
wealth  in  the  islands.  Many  years  ago  there  was  sufficient  rice  raised 
in  the  islands  not  only  to  feed  the  people  but  to  export  it  to  other 
countries.  For  a  number  of  years  before  the  American  occupancy 
rice  had  been  imported.  The  area  of  cultivation  of  the  rice  has  been 
uuich  lessened  during  the  war  and  many  fields  which  were  formerly 
tilled  are  grown  now  with  the  cogon  grass  because  of  neglect. 

The  greatest  blow  to  agriculture  has  been  the  loss  of  the  carabao  or 
water  buffalo,  upon  which  the  cultivation  of  rice,  according  to  the 
mode  pursued  in  these  islands,  is  wholly  dependent.  The  war  in  some 
degree,  and  the  rinderpest  in  a  much  larger  degree,  have  destroyed 
about  90  j)er  cent  of  the  carabaos;  and  the  natives — never  very  active 
in  helping  themselves — have  simply  neglected  the  rice  culture,  so  that 
now  these  islands  are  compelled  to  spend  about  $15,000,000  gold  to 
buy  food  upon  which  to  live.  The  carabao  is  not  so  necessary  in  the 
cultivation  of  the  sugar  crop  or  in  the  cultivation  of  hemp.  With 
respect  to  those  two  crops  it  is  used  chiefly  for  transportation,  but  in 
the  case  of  the  rice  the  cultivation  is  wholly  dependent  upon  it.  The 
rice  crop  in  China  and  Saigon  has  suffered  from  the  drought,  and  the 
price  of  rice  is  higher  than  usual  throughout  the  Orient.  In  the  Phil- 
ippines it  has  risen  from  $4  per  picul  of  137^  pounds  to  $7  a  picul, 
which  is  the  present  market  price  expressed  in  Mexican  dollars.  Part 
of  this  is  due,  of  course,  to  the  depreciation  in  silver,  but  the  effect 
upon  the  natives,  who  have  only  silver,  is  just  as  disastrous  as  if  it 
were  due  to  some  other  cause.  In  addition  to  the  loss  of  the  carabaos, 
which  has  reduced  the  acreage  of  rice  by  75  per  cent  below  the  nor- 
mal, the  locusts  for  the  last  two- years  have  been  very  destructive  upon 
the  short  crops  which  are  raised.  The  native  ponies  which,  while  not 
strong  enough  to  supply  the  place  of  the  carabaos  in  plowing,  are 
much  used  by  the  natives  for  transportation,  have  suffered  severely 
both  from  the  war  and  from  the  glanders  and  a  disease  which  in  India 
is  called  the  "surra." 

The  cholera  has  swept  over  these  islands  with  fatal  effect,  so  that 
the  total  loss  will  probably  reach  100,000  deaths.  Whole  villages 
have  been  depopulated  and  the  necessary  sanitary  restrictions  to  avoid 
its  spread  have  interfered  with  agriculture,  with  intercommunication, 
and  with  all  business.  The  ravages  of  war  have  left  many  destitute, 
and  a  guerrilla  life  has  taken  away  from  many  all  habits  of  industry. 
With  no  means  of  carrying  on  agriculture,  which  is  the  only  occupa- 
tion of  these  islands,  the  temptation  to  the  less  responsible  of  the 
former  insurgents  after  surrender  to  prey  upon  their  neighbors  and 
live  by  robbery  and  rapine  has  been  very  great.  The  bane  of  Philip- 
pine civilization  in  the  past  was  ladrones,  and  the  present  conditions 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  297 

are  most  favorable  for  its  growth  and  maintenance.  Ladronism  was 
in  the  Spanish  days  more  prevalent  in  the  Tagalog  provinces  of 
Bulacan,  Nueva  Ecija,  Zambales,  E,izal,  or  old  Manila,  Cavite,  Batan- 
gas,  Tayabas,  and  Mindoro,  than  in  any  other  part  of  the  archipelago. 
Cavite  was  famous  as  "the  mother  of  ladrones."  Many  who  were 
proscribed  for  political  offenses  in  the  Spanish  times  had  no  refuge 
but  the  mountains,  and  being  in  the  mountains  conducted  a  free 
robber  life,  and  about  them  gathered  legions  not  unlike  those  of  the 
Ro])in  Hood  days  of  England,  so  that  they  attracted  frequently  the 
sympathy  of  the  common  people.  In  the  Spanish  days  it  was  common 
for  the  large  estate  owners,  including  the  friars,  to  pay  tribute  to 
neighboring  ladrones.  Every  Tagalog  province  had  its  band  of 
ladrones,  and  frequently  each  town  had  its  recognized  ladrone  whom 
it  protected  and  through  whom  it  negotiated  for  immunity. 

The  high  price  of  carabaos  and  of  ponies  produced  by  the  scarcity 
has  made  ladronism  a  lucrative  business.  Both  the  ponies  and  the 
carabaos  bear  the  indicia  of  ownership  in  the  brands  which  are  burned 
into  their  skins.  The  ladrones  are  exceedingly  skillful  in  changing  and 
altering  the  brands  and  even  in  changing  the  form  of  the  horns  of  the 
carabaos,  so  that  they  are  able  to  steal  carabaos  in  Batangas,  run  them 
over  into  Cavite,  change  their  marks  and  appearance,  and  then  sell 
them  in  Manila  without  any  great  fear  of  detection  or  identification. 

The  warfare  in  Batangas  was  so  thorough  in  its  methods  that  the 
ladrones  of  that  province  were  exterminated.  In  the  province  of 
Laguna  the  ladrones  were  driven  out  both  by  the  Americans  and  the 
insurgents,  General  Cailles,  of  the  insurgent  army,  executing  many  of 
them  by  military  order;  but  Cavite  has  never  been  rid  of  them.  In 
that  province  the  ladrone  leaders  were  given  commissions  in  the  insur- 
gent army,  and  when  the  insurgents  surrendered,  they  returned  to 
their  former  profession.  The  same  thing  is  true  of  Bulacan  and  of 
the  mountainous  district  of  Zambales.  Ladronism  has  also  been 
always  found  in  the  mountainous  districts  of  the  province  of  Rizal 
and  in  the  towns  of  Caloocan  and  Malabon,  a  few  miles  north  of 
Manila.  Through  these  towns  the  ladrones  have  been  in  the  habit  of 
coming  into  the  city  of  Manila  whenever  pursuit  was  hot  and  of  remain- 
ing in  concealment  until  the  danger  had  passed.  It  is  not  certain 
whether  in  the  present  depressed  state  of  agriculture,  with  the  tempta- 
tions to  ladronism,  that  the  constabulary  will  be  able  without  the  aid 
of  the  military  to  stamp  it  out.  Were  there  any  attractions  to  agri- 
culture, were  there  prosperous  conditions  in  the  country,  it  would  not 
be  a  troublesome  matter  to  deal  with;  but  when  want  and  famine  are 
staring  people  in  the  face  the  life  of  the  freebooter  offers  to  the  des- 
perate and  the  weak  a  very  great  atti'action. 

The  natural  discontent  with  the  government  when  suffering  is  at 
hand,  promoted  as  it  has  been  by  the  cholera  restrictions  and  the  high 


298  llETOKTS    OF    THE    CTVTL    GOVERNMENT  ^ 

prices  of  rice  and  other  commodities  which  have  been  greatly  enhanced 
bv  the  depreciation  of  silver,  might  well  have  caused  a  new  breaking 
out  of  the  insurrection;  and,  in  my  judgment,  it  speaks  wonders  for  the 
case  with  which  this  country  may  be  governed  in  normal  times,  that 
we  have  had  comparatively  so  little  disorder  since  the  surrender  of 
the  insurgent  arms  in  April.  Civil  government  was  completely  estab- 
lished in  the  Filipino  provinces  throughout  the  archipelago  in  July  of 
this  year,  and  since  that  time  an  American  soldier  has  not  been  called 
upon  once  to  discharge  his  weapon.  The  country  has  been  policed  by 
the  constabulary,  a  force  of  some  5,000  or  6,000  men.  It  may  be  that 
as  the  conditions  grow  worse— for  they  are  likely  to  do  so  before  they 
grow  better — it  will  be  necessary  in  a  province  like  Cavite,  where 
ladronism  seems  inbred  in  the  people,  to  proclaim  martial  law  and 
even  to  call  in  the  military  finally  to  suppress  it;  but  it  is  still  hoped 
that  this  may  be  avoided.  There  are  two  provinces  in  the  southern 
islands  that  are  also  badly  infected  with  ladronism — one  the  province 
of  lloilo,  where,  however,  the  constabulary  are  rapidly  stamping  it 
out,  and  the  province  of  Negros,  where  all  the  mountaineers  have 
ever  been  ladroncs.  They  have  been  much  diminished  in  number  and 
have  received  some  severe  lessons,  but  it  will  be  a  work  of  patience 
and  time  before  they  can  be  wholly  suppressed.  The  ladrones  of  llo- 
ilo are  an  organized  band  of  cattle  thieves,  for  all  the  cattle  that  they 
can  steal  they  can  sell  at  good  prices  in  Negros,  and  some  presidentes 
of  towns  are  not  above  receiving  profits  from  this  business. 

The  failure  of  a  crop  for  a  year  may  entail  great  hardship  and  bring 
about  a  famine,  but  the  coming  year  generally  restores  a  normal  con- 
dition of  prosperity.  Such,  however,  is  not  the  present  case  in  these 
islands.  The  loss  of  the  carabaos  can  not  be  remedied  in  a  year,  and 
unless  the  greatest  efforts  are  made  either  to  replace  these  animals  from 
other  countries  or  to  substitute  methods  of  agriculture  which  shall  pre- 
vent their  being  indispensable  hereafter,  the  future  for  several  years 
offers  a  gloomy  outlook.  I  have  instituted  inquiries  to  learn  the  pos- 
sibility of  importing  carabaos.  It  has  not  been  possible  to  do  this 
until  the  present  time,  because  the  previous  importations  of  carabaos 
made  within  the  last  five  months  resulted  only  in  the  death  of  the 
animals  brought  here.  The  fields  of  the  country  are  infected  with  the 
rinderpest,  and  animals  turned  into  them  have  caught  the  disease  and 
quickly  died.  The  secretary  of  the  interior  advises  me  that  the  bureau 
of  laboratories  have  succeeded  in  the  production  of  a  scrum  which  will 
immunize  98  per  cent  of  the  cattle  upon  which  it  is  used  from  the 
rinderpest  for  several  years.  This  serum  will  be  used  upon  several 
hundred  cattle  to  determine  whether  it  is  really  efficacious,  and  if  it 
turns  out  to  be  so  I  shall  call  upon  the  Commission  for  authority  to 
purchase  as  many  thousands  of  cattle  as  possible,  to  distribute  them 
among  the  provinces  and  to  sell  them  there  at  cost.     JVleantime  it  is 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  299 

hoped  that  other  agricultural  methods  will  be  taught  to  the  people  and 
the  use  of  modern  machinery  made  feasible.  The  experiments  in 
Batangas,  to  which  the  secretary  of  the  interior  refers  in  his  reports, 
are  full  of  interest  and  instruction  upon  this  point,  but  it  is  not  neces- 
sary for  me  to  dwell  upon  them. 

The  insurrection  is  over.  It  is  true  that  the  ladrones,  though  they 
live  on  nothing  but  cattle  and  rice  stealing,  and  never  attack  American 
soldiers,  and  prey  only  upon  their  own  people,  do  masquerade  as 
insurrectos;  but  they  recognize  no  authority  and  have  no  character- 
istics other  than  those  of  banditti.  They  have  stirred  up  in  some 
of  the  provinces  the  organization  of  so-called  secret  societies  for  the 
purpose  of  securing  agencies  with  which  successfully  to  conduct  their 
robbery  and  to  sell  the  fruits  of  it.  In  other  parts  of  the  country, 
notably  in  Tayabas  and  in  Samar,  the  restlessness  succeeding  the  war, 
and  the  poverty  and  difficulty  of  living,  have  induced  many  of  the 
ignorant  and  superstitious  people  to  withdraw  to  the  mountains,  under 
the  leadership  of  leaders  who  profess  to  have  divine  attributes  and  to 
have  the  assistance  of  God  in  the  protection  of  their  followers.  The 
people  thus  drawn  out  become  religious  fanatics  and  robbers  at  the 
same  time.  Such  a  band  was  that  of  Rios  in  Tayabas,  and  its  history 
is  typical.  Rios  was  the  captain  of  an  insurgent  company  under  Colo- 
nel Zurbano,  who  commanded  in  Tayabas,  and  was  one  of  the  officers 
of  General  Cailles.  Rios  was  a  blacksmith,  or  blacksmith's  assistant, 
entirely  illiterate.  Having  committed  a  murder,  and  fearing  punish- 
ment for  it,  after  his  surrender  he  went  to  the  mountains,  and  was 
there  able  to  summon  a  few  people  to  his  assistance.  He  gave  it  out 
that  he  would  go  to  heaven,  and  returned  and  came  down  out  of  a  tree 
in  the  presence  of  a  large  number  of  his  followers  bearing  with  him  a 
box  which  he  said  if  they  assisted  him  he  would  open  and  confer  on 
them  what  was  contained  in  it — independence.  He  organized  a  town 
or  two  and  preyed  on  all  the  other  towns  in  the  mountainous  parts  of 
Tayabas,  and  became  such  a  nuisance  that  the  larger  towns  formed 
companies  of  volunteers,  and  they,  with  the  assistance  of  the  con- 
stabulary, so  harried  his  followers  that  most  of  them  are  now  dis- 
persed and  surrendered;  and  he  is  in  hiding  with  only  one  or  two 
persons. 

The  picture  that  I  have  giv^en  of  the  depressed  condition  of  agricul- 
ture, and  the  tendency  to  ladronise  in  the  Tagalog  provinces  and  in 
some  of  the  Visayan  provinces,  does  not  apply  to  those  provinces  in 
which  hemp  is  the  chief  product.  They  are  wealthy  and  prosperous, 
and  while  their  food  costs  them  more  than  it  used  to,  they  have  money 
enough  with  which  to  make  improvements,  and  schoolhouses  are  being 
built,  roads  are  being  constructed,  machinery — agricultural  and  of 
other  kinds— is  being  introduced,  and  there  is  every  evidence  of  a 
decided  forward  movement.     This  is  especially  true  of  the  province  of 


300  TtF.rO-RTS    OF    THE    CIVIL    OOVERNMENT 

Albay,  which  is  the  largest  hemp-producing  province  in  the  islands. 
Throughout  the  rice  and  Tagalog  provinces,  however,  we  must  expect 
disturbances  from  time  to  time  from  ladroncs  and  their  assistants,  the 
Katipunan  societies.  In  the  northern  provinces  of  Luzon,  in  Ilocos 
Norte  and  Sur  and  Union,  and  in  Cagayan  and  Isabela,  conditions  are 
much  less  disturbed  by  ladrones.  The  provinces  depend  more  on  the 
tobacco  and  corn  crop  than  they  do  on  the  rice  crop,  and  the  Ilocanos 
and  others  who  live  in  the  provinces  were  not  in  the  past  so  much  given 
to  ladronism.  On  the  whole,  however,  there  is  before  us  a  year  of  the 
hardest  kind  of  work  relieving  the  people  from  the  hardship  and  suf- 
fering that  are  likely  to  follow  the  failure  of  the  rice  crop,  and  in  sup- 
pressing ladronism  and  other  disturbances  due  to  economic  distress. 

The  wealth  of  these  islands  must  always  be  in  their  agricultural 
products,  and  when  more  than  three-fourths  of  their  chief  food  crop 
is  wanting,  it  is  to  be  expected  that  the  market  for  the  sale  of  goods 
from  foreign  countries  will  not  improve.  In  the  face  of  these  most 
distressing  conditions,  however,  the  importations  into  the  islands  for 
October,  1902,  were  greater  than  ever  before  in  their  history  for  one 
month.  It  has  been  suggested  that  this  growth  in  importations  is  due 
chiefly  to  an  increase  in  rice,  but  the  statistics  when  examined  do  not 
bear  out  this  interpretation  of  the  facts.  The  rice  imported  in  Octo- 
ber of  la,st  year  was  about  20  per  cent  of  the  total  imports.  The  rice 
imported  for  the  same  months  of  this  year  is  not  more  than  18  per 
cent  of  the  total  imports.  The  figures  show  that  for  the  year  ending 
June  30,  1902,  the  imports,  exclusive  of  quartermasters'  stores,  of  all 
goods  were  $11,000,000,  while  the  exports  were  about  $27,000,000. 
While  $1,100,000  of  this  is  explained  by  the  greater  importation  of 
rice,  the  remainder  can  only  be  explained  by  the  additional  investment 
of  capital  in  business,  in  equipment,  and  in  construction.  In  the  fiscal 
year  1900  the  excess  of  imports  over  exports  was  $1,130,305;  in  the 
"fiscal  year  1901  it  was  $6,257,321,  and  in  the  fiscal  year  1902  it  was 
$13,896,477.  Capital  has  seemed,  because  no  very  large  enterprises 
have  been  undertaken,  to  be  timid  in  coming  here,  but  in  fact  it  has 
come  in  a  small  way  in  various  branches  of  business,  so  that  the  aggre- 
gate is  very  considerable. 

The  explanation  of  the  greater  amount  of  imports  over  exports  from 
the  islands  is  not  to  be  found  chiefly  in  the  fact  that  much  money  has 
been  brought  here  from  America  through  the  army  and  its  payments. 
Doubtless  that  has  something  to  do  with  it,  but  this  cause  was  neces- 
sarily much  more  effective  in  the  year  ending  June  30,  1901,  than  it 
was  in  the  year  ending  June  30,  1902,  because  the  army  in  the  islands 
was  being  rapidly  reduced  in  size  during  the  year  and  the  expenditures 
were  considerably  less  in  that  year  than  in  the  previous  year;  and  yet 
the  imports  increased  nearly  35  per  cent  in  the  year  1902,  and  the  total 
business  of  the  islands  increased  from  $59,000,000  in  the  fiscal  yeai 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  301 

1901  to  $69,000,000  in  the  year  1902.  Of  course  the  change  in  tarifl 
increased  the  amount  of  importations.  That  was  its  purpose,  but  it 
does  not  dimhiish  the  importance  of  the  fact  that  business  and  the 
investment  of  capital  have  shown  a  steady  increase.  That  they  would 
have  shown  a  much  larger  increase  had  agricultural  conditions  been 
only  ordinarily  favorable  goes  without  saying.  For  the  current  year, 
I  think  we  may  anticipate  a  considerable  reduction  in  imports  and 
revenue.  Such,  at  least,  is  the  opinion  of  competent  brokers,  mer- 
chants, and  importers.  The  prostration  of  agriculture  is  too  great. 
The  savings  of  the  people  will  be  expended  in  buying  food. 

Among  other  ills  from  which  this  country  is  suffering  is  that  of  the 
fluctuating  currency.  The  evils  of  this  have  been  dwelt  upon  in  the 
report  of  the  secretary  of  finance  and  justice  and  need  no  emphasis 
from  me.  I  may  be  permitted  to  say,  however,  that  the  depreciation 
in  silver  has  greatly  increased  the  apparent  cost  of  living  to  the  very 
poor,  and  has  added  much  to  the  causes  for  their  discontent  with  pres- 
ent economic  conditions.  With  all  these  woes  which  have  come  to 
this  country,  the  Filipino  people  look  to  the  American  nation  for  the 
very  great  aid  which  will  be  furnished  them  in  a  better  market  for 
their  products  of  sugar  and  tobacco  by  reducing  the  Dingley  rates 
to  not  more  than  25  per  cent  thereof  and  by  giving  the  islands  a  stable 
gold-standard  currency. 

THE   LABOR   QUESTION. 

The  complaint  of  the  American  and  foreign  merchants  in  these  islands 
that  the  labor  to  be  had  here  is  altogether  inadequate  has  become 
acute,  and  the  chambci-s  of  commerce  representing  the  American,  Span- 
ish, English,  GeiTnan,  and  other  foreign  interests,  have  sent  a  repre- 
sentative to  the  United  States  to  invite  an  amendment  to  the  present 
Congressional  legislation  which  extends  the  Chinese  exclusion  act 
applicable  to  the  United  States  to  these  islands,  on  the  ground  that  it 
is  necessary  to  admit  Chinese  for  the  business  development  of  this 
country.  On  the  other  hand,  it  is  quite  apparent  from  the  declarations 
of  the  Federal  party  and  other  political  organizations  in  the  Philip- 
pines, and  from  the  vigorous  manifesto  of  the  only  labor  organization 
in  the  islands,  that  there  will  be  much  opposition  on  the  part  of  the 
Filipino  people  to  the  further  admission  of  the  Chinese.  That  this 
opposition  has  been  chiefly  due  to  the  competition  which  the  Chinese 
have  offered  in  the  matter  of  stores  and  trading  is  obvious  to  anyone 
who  has  looked  into  the  question;  but  it  would  be  unwise  to  infer 
from  that  that  the  introduction  of  Chinese  as  laborers  here  would  not 
be  a  very  unpopular  j^olicy  on  the  part  of  the  Government. 

The  Chinese  laborer  becomes  a  merchant  within  a  year  or  two  after 
he  reaches  these  islands,  and  then  begins  a  competition  with  the  Fili- 
pino tradesman  which  in  the  end  drives  the  Filipino  out  of  business. 
23181—04 20 


302  REPORTS    OF    THE    CIVIL    OOYERNMETSTT 

Were  there  nnlimited  Chinese  iminiofration  into  these  islands,  T  do  not 
doubt  that  tlie  tcndenc}^  would  bo  to  rcle^-ate  the  Filipino  to  the  posi- 
tion which  the  Malay  occupies  in  the  Straits  Settlements.  Most  of 
the  avenues  of  business  would  be  commanded  by  the  Chinamen,  as  they 
now  are  in  Singapore  and  the  Straits  Settlements,  and  the  islands 
would  ultimately  become  rather  a  Chinese  country  than  -a  Filipino 
country.  It  is  doubtless  true  that  were  the  doors  opened  and  the 
Chinamen  allowed  to  come  in  freely,  it  would  tend  toward  a  much 
more  rapid  commercial  and  industrial  development  of  these  islands 
than  we  are  now  likely  to  have;  but  in  this  respect  I  think  the  mer- 
chants and  others  interested  would  be  disappointed  in  the  trend  which 
affairs  would  take.  It  has  not  been  possible  in  Borneo  to  introduce 
the  Chinaman  into  the  fields;  he  has  declined  to  become  a  farmer  or  a 
farm  laborer  in  that  island,  and  as  the  conditions  are  very  similar  to 
those  which  prevail  here,  we  may  expect  the  same  result.  There  are 
to-daj'',  although  there  may  be  100,000  Chinemcn  in  the  islands,  but 
very  few  engaged  either  in  farming  or  in  laboring  upon  farms.  The 
attention  of  the  Chinaman  is  given  either  to  coolie  labor  or  skilled 
labor  in  cities  or  to  the  tending  of  stores  and  to  commercial  business. 
It  is  quite  possible  that  the  admission  of  Chinamen  would  reduce  the 
wages  of  the  stevedores,  of  the  domestic  servants  and  of  coolies  in  the 
cities,  but  there  is  grave  reason  for  doubting  how  efficient  the  China- 
man may  be  in  the  carrying  on  of  farming  operations. 

During  the  year  1902  there  has  been  a  movement  for  the  organiza- 
tion of  labor  in  the  city  of  Manila,  which  doubtless  will  spread  to 
other  parts  of  the  islands.  It  has  been  regarded,  because  of  abuses 
which  crept  in,  as  an  unmixed  evil.  I  can  not  think  it  to  be  so.  If 
properly  directed,  it  may  greatly  assist  what  is  absolutely  necessary 
here — to  wit,  the  organization  of  labor  and  the  giving  to  the  laboring 
class  a  sense  of  the  dignity  of  labor  and  of  their  independence.  The 
labor  organization  in  the  city  of  Manila  is  very  much  opposed  to  the 
introduction  of  Chinese  labor,  and  their  declarations  upon  this  point 
will  find  ready  acquiescence  in  the  minds  of  all  Filipinos  with  but  few 
exceptions.  The  truth  is  that  from  a  political  standpoint  the  unlimited 
introduction  of  the  Chinese  into  these  islands  would  be  a  great  mis- 
take. I  believe  the  objection  on  the  part  of  the  Filipinos  tosuch  a 
course  to  be  entirely  logical  and  justified.  The  development  of  these 
islands  by  Chinamen  would  be  at  the  expense  of  the  Filipino  people, 
and  they  may  very  well  resent  such  a  suggestion.  The  merchants  and 
others  who  wish  to  invest  here  must  take  into  consideration  that  labor 
is  always  likely  for  some  time  to  be  more  expensive  in  these  islands 
than  it  is  in  the  United  States  per  unit  or  product  of  labor. 

Another  phase  of  the  labor  question  which  does  not  seem  to  have 
had  its  proper  weight  with  the  merchants  of  Manila  in  their  demand 
for  the  admission  of  Chinese  coolies,  is  the  great  obstacle  which  such  a 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  303 

policy  would  present  to  the  opening  by  the  United  States  of  its  mar- 
kets to  Philippine  products.  The  existence  of  cheap  Chinese  labor  in 
these  islands  would  furnish  the  strongest  and  most  taking  argument  to 
those  whose  interests  lead  to  their  opposition  to  the  reduction  of  the 
tariff,  that  the  reduction  would  bring  American  labor  and  its  products 
into  direct  competition  with  cheap  Chinese  labor  and  its  products  in 
these  islands. 

The  evidence  with  respect  to  the  efficiency  and  quantity  of  Filipino 
.abor  is  quite  conflicting.  I  append  as  exhibits  (F  1  and  F  2)  to  my 
report  the  reports  of  Major  Aleshire  and  Captain  Butt,  in  the  quarter- 
master's department  of  the  United  States  Army,  who  have  had  large 
numbers  of  Filipino  laborers  under  their  control  and  who  have  been 
quite  successful  in  making  them  useful.  I  append  also  the  report  of 
the  municipal  board,  and  report  of  the  city  engineer  of  Manila,  who 
has  employed  a  great  many  Filipinos  constantly,  and  whose  evidence, 
generally,  supports  that  of  Major  Aleshire  and  Captain  Butt.  I 
a[)pend  also,  marked  "Exhibit  F,"  the  last  report  of  the  engineer 
upon  the  Benguet  road,  which  shows  very  great  discouragement  in  the 
use  of  Filipinos  for  the  construction  of  public  works  in  the  country. 
I  ought  to  add  on  the  other  hand  that  the  manager  of  the  Manila  and 
Dagupan  Railway  Company  has  informed  me  that  his  road  was  con- 
structed by  Filipino  laborers  almost  entirely,  except  that  at  one  time 
they  brought  in  quite  a  number  of  Chinese  for  the  construction  of 
bridges  and  the  working  upon  the  piers.  The  Chinese  did  not  prove 
to  be  satisfactory,  and  Filipino  laborers  had  to  be  substituted.  On  the 
other  hand,  the  merchants  of  Manila  claim  that  they  find  it  very  diffi- 
cult to  secure  satisfactory  labor  or  constant  labor,  and  that  the  rates  of 
wages  are  absurdly  high.  It  is  to  be  taken  into  consideration  that 
these  comparisons  of  wages  and  labor  are  made  as  to  the  efficiency 
with  American  labor,  and  as  to  reasonableness  of  price  with  the  very 
low  wages  paid  to  Chinamen  in  Hongkong.  Everything  is  high  in 
Manila.  The  cost  of  living  is  very  high,  and  it  is  not  surprising  that 
the  cost  of  labor  should  have  risen.  The  very  great  increase  in  the 
foreign  commerce  and  coastwise  trade  in  these  islands,  together  with 
the  needs  of  the  army  and  the  insular  government,  has  caused  a  cor- 
responding increase  in  the  demand  for  all  kinds  of  labor  in  and  about 
commerce,  so  that  the  increase  in  wages  and  failure  of  the  local  labor 
supply  are  easily  understood. 

I  do  not  think  it  would  be  just  to  the  Filipinos,  or  a  proper  course 
for  America  in  the  development  of  this  countr^^,  to  do  more  than  to 
extend  to  the  Commission  the  power  to  admit,  upon  reasonable  restric- 
tions, a  certain  limited  number  of  skilled  Chinese  laborers,  who  may 
contribute  to  the  construction  of  buildings  and  the  making  of  other 
improvements,  and  who  at  the  same  time  by  their  labor  may  commu- 
nicate to  Filipino  apprentices  the  skill  which  the  Filipinos  so  easily 


304  REPORTS    OF    THE    CIVIL    GOVERNMENT 

acquire.  Such  skilled  laborers  might  be  admitted  under  bond  of  theii 
employers  that  they  shall  be  returned  to  China  at  the  end  of  three  or 
live  years,  the  bond  containing  a  provision  also  that  for  every  China- 
man imported  and  employed  a  Filipino  apprentice  should  be  employed. 
Further  than  this  it  seems  to  me  that  it  would  be  unwise  to  go.  But 
such  a  provision  would  probably  bring  about  the  establishment  of  ship- 
yards here  and  other  enterprises  that  now  are  impossible  in  the  Philip- 
pines because  the  proper  skilled  labor  is  not  to  be  had. 

1  am  myself  by  no  means  convinced  that  Filipino  labor  may  not  be 
rendered  quite  useful.  The  conditions  of  war  and  of  disturbance 
throughout  the  islands  for  six  years  have  led  the  men  to  form  loaf- 
ing and  gambling  habits  and  have  interfered  with  their  regular 
life  of  industry.  Where  such  restlessness  prevails  industry  is  apt  to 
be  absent.  The  Filipino  laborers  must  be  given  three  or  four  years 
before  an  intelligent  and  just  verdict  can  be  pronounced  upon  their 
capacity  for  effective  labor.  I  am  confident  that  it  will  be  greatly 
better  than  the  suffering  merchants  of  Manila  anticipate. 

A  just  view  of  the  future  of  labor  in  these  islands  can  not  be  taken 
without  considering  the  dependent  condition  of  the  Filipino  laborers 
in  Spanish  times.  Much  of  the  labor  was  then  forced,  and  there  was 
not  a  single  circumstance  that  gave  dignity  to  it.  The  transition  from 
such  conditions  to  one  where  the  only  motive  is  gain  must  necessarily 
be  attended  with  difficulty;  but  when  the  laborer  shall  come  to  appre- 
ciate his  independence,  when  he  shall  know  that  his  labor  is  not  to  be 
a  badge  of  peonage  and  slavery,  when  American  influences  shall  make 
him  understand  the  dignity  and  importance  attaching  to  labor  under 
a  free  government,  we  may  expect  a  great  change  for  the  better  in 
the  supply  and  character  of  labor. 

THE   friars'   lands. 

On  my  return  to  the  United  States  I  was  directed  by  the  President 
and  the  Secretary  of  War  to  visit  Rome  and  confer  with  the  Pope  on 
the  subject  of  the  purchase  of  the  friars'  lands  in  these  islands,  and  the 
possible  withdrawal,  at  the  instance  of  the  Pope,  of  the  Spanish  friars 
from  the  Philippines.  The  result  of  those  deliberations  is  contained 
in  the  correspondence  between  Cardinal  Rampolla,  the  papal  secretary 
of  state,  and  myself.  I  have  submitted  that  correspondence  unoffi- 
cially to  the  members  of  the  Commission,  but  as  it  has  already  been 
forwarded  to  the  Secretary  of  War,  and  should  be  made  public,  if  at 
all,  by  either  the  Secretary  of  War  or  the  President  in  his  communi- 
cations to  Congress,  I  do  not  feel  justified  in  inclosing  it  as  an  exhibit 
to  this  report,  and  have  only  to  say  concerning  the  visit  to  Rome  and 
the  negotiations  there  that  I  believe  they  will  tend  to  bring  about  a 
much  earlier   and  a  much  more  satisfactory  solution  of  the  difficult 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  805 

questions  at  issue  between  the  Roman  Catholic  Church  and  the  Gov- 
ernment of  the  United  States  in  these  islands  than  if  the  visit  had  not 
been  made  and  the  conference  had  not  been  had. 

OFFICE    OF   THE    EXECUTIVE    SECRETARY. 

The  executive  secretary  presides  over  that  office,  which  by  the  terms 
of  the  law  was  designed  to  relieve  the  governor  from  the  routine 
executive  work.  It  has  been  found  possible  to  do  almost  all  the 
clerical  work  of  the  four  departments,  as  well  as  the  governor's  office, 
through  the  executive  secretary  and  his  subordinates. 

Mention  has  already  been  made  in  a  previous  Commission  report  of 
the  excellence  of  the  work  of  Mr.  Fergusson,  the  executive  secretary, 
especially  in  his  marvelous  power  of  interpreting  to  and  from  English 
and  from  and  to  Spanish  during  the  trip  of  the  Commission  through 
the  provinces  to  organize  them.  Mr.  Fergusson  is  now  in  the  United 
States  on  leave  and  his  place  has  been  taken  by  the  assistant  executive 
secretary,  Mr.  Beekman  Winthrop.  1  can  not  speak  too  highly  of  the 
excellence  of  Mr.  Winthrop's  work.  The  intense  interest  that  he  takes 
in  the  dispatch  of  business,  the  amount  of  responsibility  that  he  sav^es 
the  civil  governor  and  the  heads  of  the  departments,  form  a  reason  for 
constant  congratulation;  and  the  work  which  he  has  done  in  the  prepa- 
ration of  the  very  detailed  appropriation  bills  is  worthy  of  the  highest 
commendation,  and  entitles  him  to  the  unqualified  approval  and  grati- 
tude of  the  hard-working  members  of  the  Commission. 

It  has  been  suggested  by  Mr,  Winthrop  that  it  will  be  possible  in 
the  near  future  to  unite  in  the  office  of  the  executive  secretary  the 
clerical  work  and  the  translating,  which  has  now  to  be  done  in  the 
office  of  the  Philippine  Commission.  As  the  executive  secretary's 
office  and  the  Philippine  Commission  office  are  in  the  same  building, 
this  may  prove  to  be  not  only  a  practical  but  an  economical  suggestion. 
No  one  but  one  familiar  with  the  work  of  the  two  offices  can  realize 
what  the  burden  of  clerical  work  and  of  translation  and  interpretation 
is  in  the  conduct  of  the  business  of  the  Government. 

The  functions  and  operations  of  the  executive  secretary's  office  are 
admirably  set  forth  in  the  report  of  Mr.  Beekman  Winthrop,  which  is 
here  appended,  marked  "Exhibit  A." 

PROVINCIAL    GOVERNMENTS. 

Conditions  changed  so  rapidly  during  the  last  year  in  the  provinces 
that  the  statement  made  in  the  animal  reports  of  the  governors  in  Jan- 
uary, 1902,  gives  hardly  a  fair  picture  of  their  conditions  at  present. 
It  would  seem  wise  to  change  the  time  for  the  annual  report  of  the 
governors  from  January  to  September.  Many  of  these  annual  reports 
filed  in  January,  lUOii,  arc  included  in  the  evidence  taken  by  the  Sen- 


300  REPOKTS    OF    THE    (^TVIL    OOVERNMETSTT 

ate  Committee  on  the  Philippines,  but  as  the  reports  were  made  sub- 
sequent to  the  last  report  of  the  Commission,  it  seems  proper  to 
inchido  them  as  exhibits  to  this  report,  and  they  are  hereto  attached  as 
"  Exhibit  B." 

The  provincial  ^governments  have  upon  the  whole  worked  well. 
Their  iinancial  condition  is  very  fully  set  forth  in  the  report  of  the 
secretary  of  linance  and  justice,  and  even  more  in  detail  in  the  report 
of  the  auditor,  which  is  made  an  exhibit  of  the  secretary's  report.  A 
sutiicient  surplus  over  the  current  expenditures  of  the  government  has 
not  been  accumulated  in  many  of  the  provinces  to  make  substantial 
improvements  in  the  roads  and  bridges,  and  it  is  very  possible  that 
contributions  from  the  insular  treasury  will  be  necessary  to  bring  this 
about. 

The  land  tax  has  not  added  greatly  to  the  income  of  the  provinces, 
and  was  not  expected  to  do  so,  because  the  limit  of  per  cent  of  the 
tax  was  made  so  low.  Under  no  circumstances  is  the  provincial 
board,  or  are  the  municipal  councils  together,  able  to  tax  any  land 
in  the  provinces,  in  the  aggregate,  more  than  seven-eights  of  1  per 
cent  of  its  value.  The  assessment  of  the  land  tax  has  been  made  gen- 
erally through  the  islands.  As  might  have  been  expected  in  the  intro- 
duction of  a  new  system  of  taxation,  the  assessments  have  been  quite 
defective.  Local  officials  have  permitted  their  friendships  and  enmi- 
ties to  influence  in  an  absurdly  grotesque  way  their  assessment  of 
property,  and  the  persons  injured,  not  being  sufficiently  advised  of  the 
time  limited  for  appeal,  have  failed  to  appeal  within  the  required 
period,  and  lost  their  rights  thereunder.  It  will  be  very  necessary, 
therefore,  to  give  everyone  an  opportunity  to  have  the  assessment 
reviewed;  but  it  has  been  a  great  step  to  have  the  assessment  taken, 
and  it  is  not  at  all  impossible  to  remedy  much  of  the  injustice  which 
has  been  done,  by  additional  curative  legislation. 

In  some  of  the  provinces  there  is  considerable  complaint  against 
the  land  tax,  and  we  find  it  chiefly  in  those  provinces  where  there  are 
extensive  landowners,  who  never  have  been  used  to  paying  any  tax 
upon  their  lands  at  all  and  who  seize  upon  the  present  discontent  with 
reference  to  agricultural  conditions  to  raise  a  cry  against  the  land  tax 
with  the  hope  that  the  system  may  be  wholly  abolished.  In  some 
cases  the  provinces,  which  are  evidently  in  bad  condition,  have  been 
relieved  from  the  land  tax  for  one  year.  This  has  been  the  case  in 
Batangas  and  Samar.  It  is  possible  that  the  conditions  of  agriculture 
are  so  very  bad  in  many  of  the  provinces  that  similar  relief  will  have 
to  be  granted  for  the  coming  year.  But  that  a  land  tax,  as  a  system, 
must  be  continued  in  this  country,  if  the  provinces  are  ever  to  be  effi- 
cient governments,  is  certain. 

There  has  been  great  difficulty  in  filling  the  offices  of  supervisors  in 
the  provinces.     The  salaries  are  not  such  that  we  can  secure  the  serv- 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  307 

ices  of  any  but  the  younger  engineers,  and  -when  they  find  that  the 
resources  of  the  provinces  are  not  such  as  to  justify  large  improve- 
ments they  frequently  lack  energy  and  do  nothing.  This  is  partly 
accounted  for  by  the  fact  that  heretofore  they  have  had  no  central 
supervision,  as  the  treasurers  and  provincial  fiscals  have.  I  am  clear 
that  the  work  of  the  supervisors  will  be  greatly  improved  if  they  are 
put  under  the  chief  of  the  bureau  of  engineering  and  construction  and 
a  particular  assistant  of  that  officer  is  charged  with  the  duty  of  visiting 
the  provinces  and  supervising  their  work.  The  system  of  supervision 
by  the  insular  treasurer  over  the  provincial  treasurers  and  of  the  pro- 
motions which  he  has  secured  for  those  who  have  done  their  work  well 
has  made  the  provincial  treasurers  a  very  efficient  body  of  men.  They 
have  veiy  heavy  labors,  and  these  labors  are  discharged  generally  in  a 
satisfactory  way.  A  similar  result  can  doubtless  be  brought  about  in 
respect  to  the  supervisors.  The  fiscals  have  been  put  under  the  super- 
vision of  the  assistant  attornej^-general  and  supervisor  of  fiscals.  The 
poor  ones  are  being  weeded  out  and  the  provincial  governments 
strengthened. 

The  native  governors  on  the  whole  have  proven  to  be  quite  satisfac- 
tory. They  take  great  pride  in  their  provinces,  and  with  the  exception 
of  two  or  three  who  seem  to  be  listless  and  fearful  of  making  enemies, 
they  are  exerting  all  their  influence,  which  is  very  great  among  the 
people,  to  industry  and  law-abiding  habits.  It  will  probably  be  neces- 
sary to  remove  two  or  three  governors  in  whose  provinces  there  is  too 
great  looseness  of  administration  and  too  much  lawlessness,  in  order  to 
point  out  the  responsibility  that  a  provincial  governor  should  have  in 
such  matters.  The  provincial  governor  is  the  disciplinarian  of  the 
municipal  presidentes,  and  as  such  is  therefore  able  greatly  to  improve 
the  conduct  of  afl'airs  in  the  municipalities.  If  he  has  a  number  of 
friends  in  the  offices  who  do  not  realize  their  responsibility  to  the 
public  and  are  not  disciplined  because  of  the  governor's  friendship,  it 
is  very  easy  for  the  province  to  fall  into  bad  condition.  If,  however, 
he  uses  his  authority  for  good  government,  as  many  of  them  do,  he 
can  retain  a  very  strict  control  over  the  entire  population  for  good. 

It  will  probably  be  necessary  in  some  of  the  smaller  provinces  to 
dispense  with  the  office  of  supervisor  by  uniting  it  with  the  office  of 
treasurer,  because  the  salary  that  would  secure  a  good  engineer  as 
supervisor  can  not  be  paid.  The  organization  of  the  provincial 
boards  of  health  is  properly  treated  of  in  the  report  of  the  commis- 
sioner of  public  health  under  the  secretary  of  the  interior.  Suffice  it 
to  say  that  this  has  added  one  more  to  the  list  of  provincial  officers. 
The  recent  change  in  the  school  law  provides  a  division  superintend- 
ent for  almost  every  province,  his  salai-y  to  be  paid  by  the  insular 
government.  This  makes  another  provincial  officer  whose  services 
may  be  used  in  the  general  government  of  the  province  when  occa- 


308  REPORTS    OF    THE    CIVIL    GOVERNMENT 

sion  shall  require.  It  has  been  proposed,  in  provinces  where  there  is 
no  supervisor,  to  make  the  division  superintendent  of  schools  a  mem- 
ber of  the  provincial  board.  I  believe  that  this  plan  would  work  very 
well.  The  power  of  the  provincial  boards  in  matters  of  health  and 
edut-ation  and  in  assisting  agriculture  have  been  somewhat  added  to 
by  legislation,  but  sufficient  time  has  not  elapsed  to  be  able  to  give  a 
judgment  upon  the  wisdom  of  these  provisions. 

CIVIL-SERVIOE  BOARD. 

The  report  of  the  civil-service  board  shows  that  it  has  been  most 
active  in  the  conduct  of  examinations  and  the  furnishing  of  eligible 
persons  for  the  public  service.  The  principle  of  appointment  accord- 
ing to  merit,  as  shown  by  examination,  and  of  promotion  according 
to  merit,  as  shown  by  experience  and  examination,  is  carried  out  con- 
scientiously by  the  board.  The  necessity  that  the  government  is 
under  of  securing  many  of  its  civil  servants  from  the  United  States 
by  examination  under  the  auspices  of  the  United  States  Civil  Service 
Commission,  of  course  delays  the  filling  of  vacancies  and  embarrasses 
the  conduct  of  the  government.  This  embarrassment  and  delay,  how- 
ever, are  reduced  as  bureaus  become  better  established  and  the  num- 
ber of  new  employees  that  are  needed  becomes  less.  It  is  entirely 
natural  that  heads  of  bureaus  should  think  themselves  better  compe- 
tent to  judge  of  the  kind  of  men  needed  for  the  vacancies  under  them 
than  the  civil-service  board;  and  this  is  especially  the  case  with  new 
bureaus  where  the  head  of  the  bureau  has  had  no  experience  in  the 
selection  from  eligibles  presented  by  the  civil-service  board.  The 
provision  that  no  money  can  be  paid  by  a  disbursing  officer  to  a 
person  not  appointed  in  accordance  with  the  civil-service  law  has  been 
sufficient  to  restrain  any  violation  of  it.  It  has  become  so  well  under- 
stood that  the  merit  system  prevails  in  these  islands,  and  has  a  wider 
application  and  more  practical  enforcement  than  in  any  part  of  the 
United  States,  that  there  is  no  political  pressure  from  the  United  States 
for  the  appointment  of  persons  to  the  classified  service. 

The  body  of  civil-service  employees  engaged  in  public  school  teach- 
ing is  still  not  included  within  the  rules  of  the  civil-service  board.  Some 
200  of  the  legalized  quota  of  1,000  teachers  are  to  be  appointed  in  the 
near  future.  As  soon  as  the  quota  has  been  filled  it  is  understood  to 
be  the  intention  of  the  Commission  to  provide  that  thereafter  yo  teach- 
ers shall  be  employed  who  do  not  pass  a  civil-service  examination. 

During  the  next  year  it  is  hoped  to  introduce  into  the  civil-service 
law  provisions  by  which  the  learning  of  native  dialects  and  the  learn- 
ing of  Spanish  by  American  employees  will  be  encouraged,  provisions 
by  which  certain  promotions  can  only  be  obtained  after  passing  an 
examination  in  certain  native  dialects,  and  also  for  increasing  the 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  309 

salaries  of  employees  who  are  able  to  pass  an  examination  in  such 
dialects  or  in  the  Spanish  language  without  promotion.  Such  changes, 
it  is  thought,  would  make  the  body  of  our  English  speaking  civil 
servants  much  more  efficient. 

Particular  attention  is  invited  to  the  satisfactory  report  of  the  civil- 
service  board,  a  copy  of  which  is  attached  as  "  Exhibit  C." 

INSULAR  PURCHASING   AGENT. 

The  office  of  the  insular  purchasing  agent  was  created  for  the  pur- 
pose of  economy  and  efficiency  in  the  purchase  of  necessary  supplies, 
both  for  all  bureaus  and  departments  of  the  insular  government,  as 
well  as  for  the  provincial  and  municipal  governments.  When  the 
office  was  first  organized,  with  the  requirements  that  all  goods  should 
be  purchased  through  it  by  the  various  branches  of  the  government, 
the  utmost  confusion  reigned  in  the  office  because  of  the  immense 
number  of  requisitions  and  the  inability  of  the  purchasing  agent  to 
meet  them  promptly.  During  the  last  year,  however,  order  has  been 
brought  out  of  chaos,  and  it  is  now  possible  for  any  bureau  to  secure 
promptly  what  it  desires  through  the  insular  purchasing  agent.  He 
has  a  large  stock  on  hand  of  things  likely  to  be  needed  by  the  various 
bureaus  and  provinces,  and  he  has  the  means  of  securing  quickly  those 
articles  which  he  has  not  on  hand. 

The  question  of  how  goods  shall  be  bought  in  the  United  States, 
whether  through  a  purchasing  agent  stationed  there  or  by  correspon- 
dence through  the  insular  purchasing  agent,  is  one  that  has  not  been 
free  from  difficulty.  At  present  the  government  has  an  insular  pur- 
chasing agent  in  the  United  States,  but  my  recommendation  is  that 
this  arrangement  be  terminated  on  the  1st  of  January,  and  that 
thenceforth  the  insular  purchasing  agent  shall  buy  directly  from  the 
manufacturing  houses  in  the  United  States.  It  is  essential  that  quite 
a  large  fund  be  kept  in  the  United  States  with  the  disbursing  officer  of 
the  insular  government  there,  and  that  a  record  of  all  orders  and  pur- 
chases be  made  in  the  Bureau  of  Insular  Affairs  of  the  War  Depart- 
ment. It  is  thought  that  the  suggestions  of  the  insular  purchasing 
agent  will  accomplish  all  those  purposes  and  that  they  should  be 
adopted.  The  policy  of  having  one  man  buy  everything  for  all 
branches  of  the  government  is  apt  at  times  to  be  too  rigid,  and  the 
amendment  which  authorizes  the  civil  governor  to  dispense  with  this 
necessity  and  allow  heads  of  l)urcaus  or  other  officers  to  make  excep- 
tional purchases  directly  has  relieved  the  system  from  objections 
which  it  was  at  first  thought  might  lead  to  its  abolition. 

The  extent  of  the  dealings  of  the  insular  purchasing  agent  is  shown 
by  the  fact  that  his  purchases  from  August  1, 1901,  to  October  1, 1902, 
aggregate  $1,416,033.91,  and  his  total  sales  have  been  $1,252,012.36, 


810  REPORTS    OF    THE    CIVIL    GOVERNMENT 

and  his  total  property  on  hand  amounts  to  $263,465.14;  all  in  United 
States  currency. 

The  report  of  the  insular  purchasing  agent  is  attached  hereto,  marked 
"Exhibit  D." 

THE   CITY   OF   MANILA. 

The  plan  for  the  government  of  the  city  of  Manila  has  not  been 
changed  during  the  present  year,  and  the  government  has  been  carried 
on  successfully.  The  city  of  Manila  is  well  policed.  It  is  impossible 
in  a  country  where  gambling  is  so  much  a  vice  to  prevent  corruption 
from  affecting  the  police  force  in  some  degree.  The  number  of  the 
force  has  been  considerably  reduced  since  its  organization  under  the 
military  government,  and  it  is  hoped  that,  as  the  Filipino  policemen 
become  better  trained,  it  may  be  still  further  decreased.  The  work  of 
giving  the  city  an  adequate  water  supply  and  a  proper  sewer  system 
has  not  yet  begun.  The  Philippine  act  enabled  the  Commission  to 
issue  bonds  for  ^4,000,000  gold  to  better  the  water  supply  and  to  estab- 
lish a  sewer  system.  It  is  believed  that  a  competent  engineer  has  been 
engaged  in  the  United  States  for  this  work,  but  the  plans  can  not  be 
adopted  until  careful  study  has  been  given  them  and  they  have  been 
submitted  to  a  board  of  engineers. 

Much  difficulty  has  been  experienced  in  securing  proper  stone  for 
macadam,  the  quarries  at  Binangonan  having  become  exhausted.  It 
is  now  thought  that  the  Talim  quarry  on  the  island  of  Talim,  in  Laguna 
de  Bay,  which  is  owned  by  the  government,  will  furnish  very  good 
material.  The  city  has  experienced  the  same  difficulty  in  securing 
engineers  that  has  confronted  the  insular  government  with  respect  to 
supervisors  in  the  provinces,  and  much  delay  is  incident  to  the  failure 
promptly  to  procure  them.  A  very  considerable  amount  of  work  has 
been  done  in  improving  and  cleaning  streets  and  in  putting  the  city  in 
better  sanitary  condition.  Four  very  handsome  markets,  an  important 
feature  in  the  life  of  the  common  Filipino  people,  have  been  erected 
in  different  parts  of  the  city  and  are  the  source  of  a  considerable  income 
to  it.  A  satisfactory  steel  bridge,  called  the  "Santa  Cruz"  bridge, 
has  been  constructed  across  the  Pasig  and  adds  much  to  the  public 
convenience. 

Much,  however,  remains  to  be  done.  I  desire  to  call  attention  to 
the  fact  that  the  Philippine  act  in  authorizing  the  issue  of  bonds  by 
the  Philippine  government  for  use  of  the  city  of  Manila  does  not 
provide  that  those  bonds  shall  be  free  from  State,  county,  and  munici- 
pal taxes  in  the  United  States,  though  the  act  does  so  provide  with 
respect  to  bonds  to  be  issued  to  pay  for  the  friars'  lands.  Such  an 
exemption  of  all  Philippine  bonds  from  State,  county,  and  municipal 
taxes  will  enable  us  to  sell  them  at  a  very  considerable  lower  rate 
than  we  can  place  them  at  under  present  conditions,  and  I  suggest 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  311 

that  we  recommend  to  Congress  that  all  bonds  issued  by  authoiitj^  of 
the  Philippine  act  shall  be  free  not  only  from  Philippine  and  United 
States  taxation,  but  also  from  State,  county,  and  municipal  taxation  in 
the  United  States.  This  government  is  an  instrument  of  the  United 
States  in  working  out  a  great  and  most  important  problem.  It  is  an 
agency  of  the  United  States,  and  it  seems  proper  that  the  successful 
maintenance  of  such  an  agency  should  not  be  embarrassed  by  State 
taxation  upon  the  bonds  which,  in  the  prosecution  of  the  purposes  of 
the  United  States,  it  is  obliged  to  issue. 

The  land  tax  in  the  city  has  been  levied  and  collected.  The  work 
of  assessing  the  value  of  the  real  property  has  been  onerous,  and  many 
complaints  are  made  of  the  injustice  of  the  assessment  in  the  outlying 
portions  of  the  cit3^  It  seems  probable  that  injustice  has  been  done 
in  estimating  what  ought  to  be  assessed  as  acre  or  hectare  property 
by  the  square  meter,  and  a  reassessment  or  an  opportunity  for  reas- 
sessment ought  to  be  furnished  by  legislation  at  once.  An  examina- 
tion of  the  report  on  assessments  and  collections  will  show  that  while 
there  are  in  the  city  real  estate  and  improvements  assessable  for  taxa- 
tion amounting  to  $il, 005, 190.60,  there  is  nonassessable  real  property 
in  the  city  of  the  value  of  $25,502,329.51,  of  which  $13,381,388.60  is 
the  value  of  public  property,  not  including  the  streets  and  parks,  and 
^12,117,940.94  is  the  value  of  church  property,  which,  under  the  law, 
is  exempt.  Of  this  church  property  but  §2,737,423.90  is  the  value  of 
land  and  improvements  belonging  to  the  archbishop  or  the  Roman 
Catholic  Church  proper,  while  the  remainder,  19,380,517.04  is  the 
value  of  property  belonging  to  the  religious  orders,  religious  schools, 
and  convents. 

The  subject  of  public  instruction  in  the  city  of  Manila  has  been 
suiEciently  covered  by  the  report  of  the  secretary  of  public  instruction. 

The  fire  department  of  the  city  is  rapidly  being  rendered  as  efficient 
a  service  as  there  is  in  the  Orient,  and  will,  when  completed,  in  the 
course  of  a  few  months  bear  comparison  with  the  fire  departments  of 
cities  in  the  United  States.  The  full  report  of  the  municipal  board  is 
hereto  annexed,  marked  "  Exhibit  E."  Especial  attention  is  called  to 
the  very  large  number  of  new  buildings  that,  in  spite  of  the  very 
high  prices  of  labor  and  material,  are  being  erected  in  the  city. 

BENGUET. 

The  Commission  has  been  very  much  disappointed  in  the  difficulties 
it  has  encountered  in  the  construction  of  a  wagon  road  from  Pozorubio 
in  the  province  of  Pangasinan  to  Baguio  in  the  province  of  Benguet, 
a  road  which  is  essential  to  the  use  of  Benguet  as  a  site  for  a  sanita- 
rium and  for  the  recuperation  of  the  health  of  civil  employees.  The 
engineer,  Captain  Mead,  who  made  the  first  survey  of  the  road  and 


312  REPORTS    OF   THE    CIVIL    (JOVERNMENT 

entered  upon  its  construction,  made  an  error  in  placing  the  road  at 
such  a  level  that  it  had  to  be  constructed  through  friable  rock  at  a 
great  height  above  the  bed  of  the  Bued  River.  On  this  grade  it  was 
most  difficult  to  maintain  a  proper  slope  for  the  fills,  and  the  rainy- 
season  with  its  accompan3dng  landslides  washed  the  road  away  along 
5  miles  of  its  course.  A  different  course  for  this  distance  has  now 
been  adopted,  carrying  the  road  nearer  to  the  rivei-  along  a  course 
where  it  is  chiefly  hard  rock,  and  where  there  is  no  difficulty  in  main- 
taining a  proper  slope  even  against  the  hard  rains  of  the  wet  season. 
The  road  has  been  constructed  from  Pozorubio  on  the  one  hand  and 
from  Baguio  on  the  other,  so  that  the  two  ends  are  within  12  miles  of 
each  other,  and  it  is  hoped  that  during  the  coming  winter  a  horse  trail 
can  be  constructed  to  join  the  two  parts  and  that  by  next  summer  the 
whole  wagon  road  will  be  completed.  The  original  estimate  for  the 
cost  was  875,000,  but  the  actual  cost  has  already  greatly  exceeded  that 
sum  and  it  is  doubtful  whether  it  can  be  constructed  for  less  than 
$300,000.  The  work  on  the  road  was  stopped  for  three  months  on 
account  of  cholera.  I  append  the  report  of  the  engineer  in  charge  of 
the  work  and  call  attention  to  the  difficulties  which  he  has  encountered 
in  the  employment  of  labor.     The  report  is  marked  Exhibit  F. 

DEPARTMENT   OF   COMMERCE   AND   POLICE. 

I  come  now  to  the  bureaus  which  are  included  in  the  department  of 
commerce  and  police. 

CONSTABULARY. 

The  first  and  for  the  time  the  most  important  bureau  of  this  depart- 
ment is  that  of  the  constabulary.  Since  the  4th  of  July,  last,  when 
the  civil  governments  were  established  throughout  the  Christian  Fili- 
pino provinces  and  the  military  control  therein  ceased,  not  a  single 
shot  has  been  fired  by  an  American  soldier  in  the  preservation  of  peace 
and  order,  and  no  request  has  yet  been  made  of  the  commanding  gen- 
eral for  assistance  in  the  suppressing  of  lawless  violence  or  disturbance. 
The  preservation  of  peace  and  order  has  been  wholly  committed  to 
the  constabulary  and  to  the  municipal  police.  The  constabulary  num- 
ber something  over  5,000  men  and  the  appropriation  bill  passed  for 
the  ensuing  quarter  authorizes  the  increase  of  this  number  to  6,000 
men.     The  municipal  police  generally  are  by  no  means  well  disciplined. 

It  was  the  intention  of  the  Commission  in  passing  the  law  providing 
for  the  organization  of  the  constabulary  that  the  inspectors  should 
devote  much  of  their  time  to  the  discipline  of  the  local  police,  but  the 
calls  upon  them  for  the  suppression  of  ladronism  and  other  disturb- 
ances have  been  so  numerous  that  there  has  not  been  time  or  oppor- 
tunity for  the  improvement  of  this  important  municipal  arm  of  the 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  313 

forces  of  law  and  order.  The  towns,  many  of  them,  are  so  poor  that 
it  is  impossible  for  them  to  support  a  large  or  even  adequate  police 
force.  In  order  that  the  municipal  police  should  be  effectiv^e  against 
ladrones  it  is  necessary  that  they  be  properly  armed  with  rifles.  In  a 
town,  however,  which  can  only  afford  five  or  six  municipal  policemen 
the  distribution  of  rifles  to  the  police  only  offers  a  temptation  to  large 
bands  of  ladrones  to  capture  the  police  and  take  their  rifles,  thus 
increasing  the  number  of  arms  held  by  the  ladrones.  In  some  prov- 
inces, notably  in  the  provinces  of  Tayal)as  and  Bulacan,  the  constab- 
ulary and  the  local  police  under  the  governor  have  worked  together 
with  great  success.  Ladronism  in  those  provinces  is  being  rapidly 
stamped  out.  In  the  province  of  Bulacan,  Colonel  Tecson,  a  former 
insurgent  oflScer  elected  governor,  has  devoted  his  entire  time  and 
energy  to  the  organization  of  a  volunteer  force,  which  has  chased  the 
ladrones  to  the  mountains  and  out  of  his  province  so  effectively  that  in 
a  short  time  that  province,  which  has  alwaj^s  been  noted  for  ladronism, 
will  be  freer  from  it  than  ever  in  its  history.  The  arms  for  such  volun- 
teer forces  are  always  distributed  by  the  constabulary.  In  Tayabas  the 
system  followed  was  by  volunteers  from  the  towns.  The  authorities 
of  the  town  induced  the  people  of  the  smaller  barrios  living  near  the 
mountains  exposed  to  attack  from  the  ladrones  to  come  into  the  thickly 
inhabited  settlement,  bringing  their  belongings,  and  leaving  nothing 
from  which  the  ladrones  might  secure  sustenance;  in  other  words,  they 
have  adopted  a  reconcentration  policy  on  a  small  scale,  and  the  effect 
of  that  has  been  to  bring  the  ladrones  in  from  the  mountains  to  surren- 
der in  considerable  numbers,  and  the  province  is  being  rapidly  rid  of 
this  human  pest.  The  conditions  in  Cavite,  however,  have  not  been 
so  favorable,  and  it  is  with  the  greatest  reluctance  that  any  rifles  are 
distributed  to  the  municipal  police,  because  the  sj^mpathizers  with  the 
ladrones  in  the  towns  are  so  many  that  the  rifles  may  be  stolen. 

There  have  been  four  desertions  from  the  constabulary  in  Cavite 
which  resulted  in  the  loss  of  some  six  or  eight  rifles.  The  chief  of  the 
constabulary  has  deemed  it  wise  to  discharge  twenty  men  enlisted  in 
the  neighborhood  of  San  Francisco  de  Malabon  and  Imus  lest  they 
might  also  desert.  The  governor  has  applied  for  3<H)  Krag  rifles  for 
use  with  his  volunteers,  but  it  is  doubtful  whether  there  is  a  sufficient 
guaranty  that  these  rifles  will  not  find  their  wa}'  into  the  possession  of 
the  ladrones  to  justify  the  risk.  In  Zambales  the  governor,  in  an 
earnest  desire  to  suppress  Roman  Manalang,  a  ladrone  of  ten  or  fifteen 
years'  reputation,  a  murderer  and  a  desperado,  has  asked  for  50  rifles 
with  which  to  arm  a  body  of  volunteers  made  up  of  the  better  educated 
and  wealthy  men  of  the  province,  in  the  confident  belief  that  he  may 
capture  Manalang  and  end  the  lawlessness  in  the  northern  part  of  that 
province,  of  which  the  outlaw  is  the  chief  promoter.  Judge  Johnson, 
of  the  court  of  first  instance,  has  sentenced   to   Bilibid  Prison   for 


314  REPORTS    (W    THE    CIVIL    GOVERNMENT 

loTio-  terms,  from  three  to  twenty  years,  about  one  hundred  of  Mana- 
lano's  men,  and  this,  it  is  thought,  will  have  a  quietinc^  cfl'cct  in  tliat 
mountainous  and  most  difficult  province.  The  work  of  the  constabu- 
lary has  been  so  constant  that  time  has  not  been  given  even  to  the 
thorough  discipline  of  the  enlisted  men.  Their  work  has  been  exceed- 
ingly heavy  and  burdensome,  and,  on  the  whole,  the  chief,  the  inspect- 
ors, and  the  enlisted  men  are  to  be,  as  a  bod}^  highly  commended. 
There  have  been  from  a  number  of  provinces  complaints  made  of  abuses 
by  the  enlisted  men  of  the  constabulary. 

It  is  a  fact  so  coiiunon  that  it  must  be  noted  that  Filipinos  of  the 
less  educated  class  with  a  little  authority  are  prone  to  use  that  author- 
ity to  oppress  their  fellow-Filipinos,  and  the  abuses  of  the  constabu- 
larj'-  are  almost  wholly  committed  by  individual  members  of  that  body 
when  not  under  the  immediate  observation  and  control  of  American 
inspectors.  Of  course,  the  abuses  of  the  constabularj^  are  very  grossly 
exaggerated  by  deliberate  misrepresentation  of  persons  whose  sym- 
pathy and  profit  are  with  the  ladrones,  and  who  do  not  welcome  the 
presence  of  the  constabulary  on  any  ground.  Another  difficulty  has 
been  a  lack  of  tact  on  the  part  of  some  of  the  American  inspectors 
engaged  in  the  provinces.  The  authority  which  they  exercise  over 
the  constabulary  of  the  province,  which  generally  is  the  only  effective 
police  body,  is  apt  to  make  them  feel  independent  of  the  governor  of 
the  province,  especially  if  they  are  young  and  inexperienced;  and 
when  they  do  not  think  that  they  find  in  the  native  governor  the 
active,  energetic  assistance  which  they  are  entitled  to,  they  conduct 
theiuselves  in  a  manner  not  calculated  to  conciliate  the  governor  or  to 
secure  any  useful  cooperation  by  him.  It  has  been  my  steady  effort 
to  convince  these  inspectors  that  next  to  dishonesty  and  cruelty  a  fail- 
ure to  show  proper  respect  to  the  governor  of  the  province  and  to 
accord  to  him  the  courtesy  which  the  dignity  of  his  office  requires  will 
be  considered  •  the  greatest  dereliction  of  duty  of  which  they  can  be 
guilty  and  will  be  cause  for  instant  dismissal.  The  chief  of  the  con- 
stabulary has  great  difficulty  in  securing  the  proper  material  for  pro- 
vincial and  other  inspectors,  but  on  the  whole  he  has  succeeded 
remarkably  well. 

The  constabulary,  because  of  the  large  number  of  posts  in  the 
islands,  has  proved  to  be  the  most  efficient  corps  for  the  maintenance 
of  a  civil  commissary  and  the  distribution  and  sale  of  goods  to  civil- 
ian employees  throughout  the  archipelago,  and  this  has  entailed 
great  additional  work  upon  the  force.  The  constabulary  are  quite 
dependent  upon  the  telegraphic  system  for  efficiency,  and  therefore 
as  the  military  turn  the  telegraph  lines  over  to  the  civil  government  they 
are  placed  under  control  of  the  signal  officer  detailed  for  work  in 
the  constabulary  bureau.  Ultimately  it  is  the  purpose  of  the  Army 
to  turn  over  to  the  civil  government  all  the  telegraph  lines.     More  prog- 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  315 

ress  has  really  been  made  in  the  development  of  telegraph  lines  than  in 
almost  any  other  commercial  direction  in  these  islands.  It  is  possible 
now  to  reach  by  telegraph  the  capitals  of  all  the  Christian  provinces 
except  Romblon  and  Paragua,  and  it  is  also  possible  to  reach  all  the 
principal  towns  of  Mindanao  ar  \  in  the  Jolo  group.  Romblon  will 
soon  be  reached  by  cable  and  then  only  one  Christian  Filipino  province 
will  be  beyond  the  reach  of  the  central  government  by  wire.  Such 
facilities  for  immediate  communication  with  the  governors  greatly 
promote  the  eiSciency  of  the  government. 

Through  the  kindness  of  General  Davis  the  old  Spanish  cavalry 
barracks,  known  under  the  present  government  as  the  "pony  corral," 
has  been  turned  over  to  the  chief  of  constabulary  for  his  headquarters. 
He  proposes  to  maintain  a  reserve  of  constabulary  of  150  or  200  men 
in  the  city  of  Manila,  drilling  them  and  keeping  them  here  so  that 
they  may  be  used  in  any  province  where  an  emergency  may  arise.  He 
will  also  organize,  under  authority  of  the  appropriation  bill  for  the 
quarter  ending  January  1, 1903,  a  constabulary  band.  The  excellence 
of  the  work  done  by  the  constabulary,  not  only  in  its  police  but  also 
in  its  civil,  commissary,  and  telegraph  lines,  bears  admirable  witness 
to  the  exceptional  executive  ability  of  the  chief  of  the  constabulary, 
Capt.  Henry  T.  Allen,  of  the  Sixth  Cavalry.  His  report  is  hereto 
attached,  marked  "Exhibit  G." 

BUREAU  OF  POSTS. 

On  July  1,  1901,  there  were  24  regular  post-offices  in  the  islands. 
On  June  30,  1902,  6Q  had  been  added,  and  since  the  close  of  the  fiscal 
year  the  number  has  been  increased  to  160.  There  has  been  an  increase 
in  the  postal  revenue  of  the  islands  of  about  $15,000,  but  of  this  $11,462 
was  from  money-order  fees,  so  that  there  was  less  than  3  per  cent 
increase  in  the  ordinary  revenues.  The  expenses  were  16  per  cent 
greater.  This  was  due  to  the  fact  that  by  act  No.  179  it  was  provided 
that  the  registration  and  carriage  of  official  mail  of  provincial  officials 
from  one  point  in  the  Philippine  Islands  to  another  should  be  free  of 
charge.  In  the  many  extensions  of  civil  government  and  the  immense 
amount  of  mail  transmitted  for  public  purposes,  it  has  come  about  that 
more  than  one-half  the  whole  mail  matter  handled  is  governmental. 
There  is  an  increase  of  more  than  20  per  cent  in  the  bulk  of  the  mail. 
The  money-order  service  in  the  islands  is  becoming  of  great  impor- 
tance. Both  Chinamen  and  natives  are  beginning  to  use  it  for  com- 
paratively large  orders.  In  the  United  States  the  average  money 
order  is  about  |8,  in  the  Philippines  it  averages  |50.  The  remittances 
to  Manila  from  the  provinces  to  meet  money  orders  issued  during  the 
year  amount  to  $1,070,937.97,  while  the  remittances  from  Manila  to 
the  United  States  amount  to  1618,125.  This  shows  the  balance  between 
the  orders  drawn  both  ways. 


31  ()  RKi'oirrs  of  the  fTVir.  government 

Another  use  which  is  boin^  made  of  the  money-order  branch  of  the 
post-office  department  is  as  a  deposit  of  funds.  There  is  about  1600,000 
now  deposited  in  the  post-offices  for  safe-keeping.  This,  it  seems  to 
me,  is  a  significant  fact  tending  to  sliow  that  it  would  be  wise  for  this 
government  to  establish  throughout  the  country  postal  savings  banks. 
When  we  consider  that  there  are  no  banks  at  all  in  most  of  the  prov- 
inces, and  that  there  is  much  insecurity  in  holding  money,  and  when 
we  know  that  a  vast  amount  of  silver  is  buried  in  the  ground  to  avoid 
robbery  by  the  ladrones  and  other  thieves,  we  may  justly  suppose  that 
the  institution  of  postal  savings  banks  would  not  only  benefit  those 
who  now  save  money  in  this  irregular  way,  but  might  induce  others  to 
save  that  which  for  fear  of  loss  they  now  spend  or  waste.-  I  respectfully 
commend  the  matter  to  the  early  attention  of  the  Commission.  The 
report  of  the  director  of  posts  is  hereto  attached,  marked  "Exhibit 
H."  The  postal  service  is  by  no  means  as  complete  as  we  hope  to  make 
it,  and  has  not  yet  had  the  assistance  of  the  new  vessels  of  the  coast 
guard  and  transportation  bureau. 

COAST   GUARD   AND   TRANSPORTATION. 

We  have  alluded  in  our  former  reports  to  the  difficulties  in  carrying  on 
this  government  presented  by  the  absence  of  water  transportation  from 
one  point  to  another  and  from  one  province  to  another  and  from  one 
island  to  another  throughout  the  archipelago.  We  foreshadowed  our 
purpose  in  our  previous  report  of  purchasing  fifteen  vessels  with  which 
to  meet  the  necessities  of  the  revenue,  postal,  and  constabulary  bureaus, 
and  of  the  provincial  governments.  The  Commission  contracted  for 
the  constructi®n  of  ten  vessels  148  feet  long  by  25  feet  beam,  and  five 
vessels  140  feet  in  length  by  25  feet  beam.  The  bureau  of  coast  guard 
and  transportation  was  provided  for  by  law  and  organized  with  a  naval 
officer,  Captain  Marix,  detailed  as  its  head.  Captain  Marix  has  dis- 
played commendable  interest  in  the  work  of  the  bureau  and  has  been 
most  useful  in  guiding  the  Commission  in  the  course  to  take  in  the  estab- 
lishment of  an  island  coast  guard  and  civil  navy.  He  was  authorized  to 
malie  contracts  with  the  firm  of  Farnham,  Boyd  &  Co. ,  of  Shanghai,  by 
which  ten  of  the  vessels  were  to  be  constructed  by  them,  and  with  the 
Uraga  Dock  Company,  of  Uraga,  Japan,  by  which  the  remaining  five 
were  to  be  constructed  by  that  company.  The  vessels  are  to  have  at 
least  10  knots  speed.  Five  of  the  steamers  have  been  completed,  two 
of  them  have  been  delivered  and  are  most  satisfactory,  showing  a  speed 
considerably  in  excess  of  that  fixed  in  the  contract,  and  three  are  now 
on  their  way  from  Shanghai  to  Manila.  All  of  the  steamers  are  to  be 
delivered  in  Manila  before  February.  The  added  efficiency  of  all 
governmental  operations  which  these  steamers  will  give,  no  one  can 
appreciate  unless  he  is  familiar  with  the  difficulties  that  we  now  experi- 
ence from  a  lack  of  transportation.  It  will  doubtless  be  necessary  for 
us  to  purchase  additional  launches  and  other  vessels  for  local  use,  but 


0¥    TllK    PHILIPPINE    ISLANDS,    11«)()-1!»03.  317 

the  mainstay  will  be  the  fifteen  vessels  above  described.  They  have 
been  built  with  unusual  strength  to  resist  the  heavy  seas  that  prevail 
in  these  waters  during  the  rainy  season. 

The  bureau  of  coast  guard  and  transportation  is  vested  with  the 
power  and  authority  to  complete  the  construction  of  light-houses  and 
supervise  them.  It  is  estimated  that  1200,000  will  be  needed  to  com- 
plete the  construction  of  the  light-houses  which  were  begun  by  the 
Spaniards,  and  that  this  will  take  eighteen  months.  The  great  increase 
in  trade  requires  new  lights  to  be  constructed  according  to  a  plan 
which  is  now  being  drawn  uj).  The  new  Hghts  will  probably  be  con- 
structed of  iron  framework,  because  this  is  cheaper  than  stone  and 
affords  quite  suiEcient  resistance  to  the  storms  and  waves.  A  school 
of  apprentices  has  been  established  at  Corregidor  light-house  in  order 
that  competent  light-house  keepers  may  be  had.  A  report  of  the  chief 
of  the  bureau  of  coast  guard  and  transportation  is  attached  hereto, 
marked  "Exhibit  J." 

COAST  AND  GEODETIC  SURVEY. 

By  an  equitable  arrangement  between  the  United  States  Government 
and  the  Philippine  government  surveys  are  being  made,  under  the 
supervision  of  the  United  States  Coast  and  Geodetic  Survey,  of  harbors 
and  inlets  of  those  islands  and  the  coast.  Considerable  progress  has 
been  made,  as  will  be  seen  by  the  report  of  the  chief  of  the  work  in 
these  islands.     The  report  is  appended,  marked  "Exhibit  K." 

FEANCHISES  AND  COEPORATIONS. 

In  the  press  of  legislative  work  the  Commission  has  riot  as  yet  passed 
a  general  railroad  law  or  indeed  a  general  corporation  lav/,  though  both 
must  be  passed  in  the  immediate  future.  A  law  has  been  passed  pro- 
viding for  the  granting  of  franchises  for  an  electric  street  railway  in 
the  city  of  Manila,  which  invites  competitive  bids  upon  three  points: 
The  duration  of  the  franchise,  the  fare  to  be  charged,  and  the  percent- 
age of  gross  receipts  to  be  paid  for  the  franchise.  Bids  are  being 
advertised  for  in  Manila,  New  York,  Washington,  and  Chicago.  There 
is  one  syndicate  on  the  ground,  at  whose  instance  the  franchise  law  was 
passed  after  material  modifications  in  the  proposals  made  by  it.  It  is 
not  known  whether  the  syndicate  at  whose  instance  this  law  was  passed 
will  now  bid  or  not,  but  it  is  hoped  that  more  than  one  bid  will  be 
received.  The  necessity  for  electric  street  railways  in  the  city  of 
Manila  is  most  urgent.  We  have  not  yet  had  any  proposals  lOr  rail- 
road franchises,  except  a  formal  proposition  from  the  Manila  and  Dagu- 
pan  Railway  to  construct  a  line  from  near  Calumpit  in  Bulacan  to  San 
Isidro,  Nueva  Ecija,  and  Cabanatuan  in  the  same  province,  a  distance 
of  71  kilometers.  The  Commission  has  not  yet  considered  the  wisdom 
of  granting  such  a  franchise,  but  has  set  the  hearing-  of  the  petition  at 
an  open  session  for  November  17. 

23181—04 21 


318  KKPORT!^    OF    TIIK    CIVIL    <  iOVKUNM  KNT 

COASTWISE   TKADE. 

On  the  IStli  day  of  October,  1902,  by  direction  of  the  Coniinission, 
I  sent  a  telcoTiun  to  the  Secretary  of  War,  requesting  that  the  Execu- 
tive order  with  reference  to  the  coastwise  trade  in  the  Philippine 
Islands  should  be  so  modified  as  to  permit  the  Commission  to  open  it 
to  all  foreign  and  American  vessels;  that  the  transportation  rates  were 
so  high  as  to  unduly  raise  the  price  of  rice  and  other  necessary  com- 
modities, and  that  there  was  a  possible  pool  for  the  maintenance  of 
such  rates.  It  turns  out  that  there  is  no  pool  in  the  sense  of  a  divi- 
sion of  profits,  but  it  is  a  fact  that  the  transportation  rates  have  been 
advanced  to  a  very  high  figure,  though  tbey  were  high  before,  and 
that  this  has  been  done  by  an  agreement  by  all  the  persons  engaged 
in  the  coastwise  trade.  As  nearly  all  the  steamers  in  the  coastwise 
trade  are  owned  either  by  Spaniards,  Englishmen,  or  Chinamen,  and 
as  few,  if  any,  Americans  had  seen  fit  to  engage  in  this  lucrative  busi- 
ness, it  did  not  occur  to  the  Commission  that  there  could  be  any 
objections  to  depriving  the  foreigners  already  in  the  business  of  the 
monopoly  by  allowing  other  foreigners  to  come  into  it.  In  view  of 
the  short  food  supply  throughout  the  islands,  the  high  transportation 
rates  have  a  most  direct  effect  in  increasing  the  suffering  by  increas- 
ing the  cost  of  transporting  food  from  Manila  and  other  bases  of  sup- 
ply to  the  provinces.  A  bill  has  therefore  passed  a  second  reading 
and  is  awaiting  reading  in  open  session,  throwing  open  the  coastwise 
trade  until  the  1st  of  July,  1904,  to  foreign  vessels.  It  is  thought 
that  the  privileges  granted  to  foreign  vessels  are  sufiiciently  safe- 
guarded in  the  act  to  prevent  their  being  abused. 

IMPROVEMENT   OF   THE   PORT. 

The  improvement  of  the  port  works  has  been  begun  this  year  in 
earnest,  and  the  amount  of  work  accomplished  will  be  seen  by  refer- 
ence to  the  report  of  the  engineer  in  charge,  Major  Sears,  which  is 
api^ended  and  marked  "Exhibit  L." 

It  will  be  necessary  in  addition  to  the  breakwaters  already  projected 
to  erect  a  breakwater  from  2,000  to  3,000  feet  in  length  to  protect 
ships  from  the  waves  when  the  wind  lies  in  a  particularly  southwesterly 
direction.  This  will  increase  the  expense  over  the  present  contracts 
by  about  $1,000,000,  making  the  total  cost  upward  of  14,000,000. 

CONSULTING   ENGINEER. 

The  consulting  engineer  has  been  but  recently  appointed  under  a 
law  defining  his  duties,  but  his  ofiice  has  not  yet  been  organized,  as  it 
is  expected  to  organize  it,  with  a  view  to  the  supervision  of  provincial 
supervisors  and  the  construction  of  public  works  in  various  parts  of 


OF    THE    PHTLIPPTNE    ISLANDS,    1900-1903.  319 

the  archipelago.     The  preliminary  report  of  Mr.  Beardsley,  the  con- 
sulting engineer,  is  hereto  appended,  marked  "Exhibit  M." 

November  10,  1902. 

As  this  report  has  not  yet  been  forwarded ,  it  seems  proper  to  me  to 
add  a  short  statement  concerning  a  movement  that  may  have  an  impor- 
tant bearing  upon  future  conditions,  and  which  may,  perhaps,  add 
much  to  the  labor  of  maintaining  peace  and  order  in  the  archipelago. 

Gregorio  Aglipay  is  an  Ilocano,  and  was  an  ordained  priest  of  the 
Roman  Catholic  Church  in  these  islands  before  the  insurrection.  Dur- 
ing the  insurrection  he  continued  his  priestly  functions  at  Malolos  and 
took  such  action  as  to  bring  him  into  conflict  with  the  hierarchy  of  the 
church.  What  the  merits  of  this  controversy  were  I  do  not  know. 
Subsequently  he  assumed  the  leadership  of  the  insurrecto  forces  in 
Ilocos  Norte  and  carried  on  a  very  active  campaign  in  the  mountains 
of  that  province.  He  was  one  of  the  last  of  the  leaders  to  surrender 
with  his  forces  in  North  Luzon.  Since  his  surrender  he  has  been  quite 
active  in  spreading  propaganda  among  the  native  priests  against  the 
so-called  Friar  domination  of  the  church  in  these  islands.  The  definite 
refusal  of  the  Vatican  to  withdraw  the  Spanish  friars  from  the  islands 
was  made  the  occasion  for  the  formation  of  the  Independent  Filipino 
Catholic  Church.  Actively  engaged  with  Aglipay  in  this  movement 
was  Isabelo  de  los  Reyes,  the  former  editor  of  an  insurrecto  paper, 
published  in  Madrid,  called  Filipinas  ante  Europa,  and  an  agitator  of 
irresponsible  and  irrepressible  character. 

Padre  Aglipay  has  secured  the  active  and  open  cooperation  of  a  num- 
ber of  native  priests,  15  of  whom  he  has  appointed  bishops,  himself  hav- 
ing the  title  of  archbishop.  He  has  held  mass  in  many  different  places 
in  and  about  Manila;  his  services  have  attracted  large  gatherings  of 
people.  Most  of  the  churches  in  the  Philippine  Islands  were  built  by 
the  labor  of  the  people  of  the  respective  parishes  and  devoted  to  the 
Roman  Catholic  Church;  but  the  people  have  a  sense  of  ownership, 
and  when  a  majority  of  them  separate  themselves  from  the  Roman 
Catholic  Church  and  accept  a  new  faith,  it  is  difficult  for  them  to 
understand  that  they  have  not  the  right  at  once  to  dispossess  the 
priest  of  the  Roman  Catholic  Church  and  place  in  custody  and  use  of 
the  edifice  their  newly  made  cure.  In  order  to  prevent  constant 
recurrence  of  disturbances  of  the  peace  I  have  had  to  take  a  firm 
stand  with  the  leaders  of  the  movement  by  impressing  upon  them  that 
forcible  dispossession  of  a  priest  of  the  Roman  Catholic  Church,  for 
years  in  peaceable  possession  of  the  church  and  the  rector's  house,  is 
contrary  to  law,  and  would  be  prevented  by  the  whole  police  power. 
The  leaders  of  the  movement  assure  me  that  they  have  no  desire  to 
violate  the  law  and  wish  to  keep  within  it,  but  that  their  followers  at 
times  are  hard  to  control.     I  have  said  to  them  that  if  they  claim  title 


320  REPORTS    OF    THE    CIVIL    (}OVERNMENT. 

to  the  churches  they  may  assert  it  through  the  courts,  and  if  successful 
will  secure  not  only  the  confirmation  of  their  title  but  actual  possession. 

In  the  case  of  a  church  at  Pandacan  the  women  of  the  parish,  in  the 
temporary  absence  of  the  priest,  took  possession  of  the  church,  obtain- 
ing the  keys,  and  Father  Aglipay  celebrated  mass  in  the  church.  I 
sent  for  him  and  for  his  counsel  and  advised  them  of  the  unlawful 
character  of  the  action  of  the  women,  and  directed  them  to  see  that 
possession  was  restored.  They  promised  to  do  so,  but  found  the 
women  so  obdurate  that  1  called  in  the  women  and  after  a  somewhat 
lengthy  discussion  told  them  that  I  must  have  the  keys.  The  leader 
of  the  women  delivered  the  keys  to  me,  with  a  statement  that  they 
would  deliver  the  keys  to  the  governor,  but  not  to  the  fraile.  The 
new  priest  who  had  been  appointed  was  not  a  fraile,  but  was  a  Paulist 
father.  They  announced  to  me  that  they  had  separated  from  the 
Roman  Catholic  Church  and  were  standing  with  Aglipay.  I  turned 
the  keys  over  to  the  chief  of  police  and  have  put  the  regularly 
appointed  priest  in  possession  of  the  church,  and  quiet  now  reigns 
there.  Yesterday  (Sunday)  I  am  informed  that  Father  Aglipay 
assumed  the  robes  and  functions  of  an  archbishop,  holding  services  in 
the  town  of  Cavite  and  in  the  neighborhood. 

I  have  taken  occasion  to  say,  whenever  an  opportunity  occurred, 
that  the  insular  government  desired  to  take  no  part  whatever  in  the 
religious  controversies  thus  arising;  that  it  would  protect  Father 
Aglipay  and  his  followers  in  worshiping  God  as  they  chose  just  as  it 
would  protect  the  Roman  Catholic  Church  and  its  ministers  and  fol 
lowers  in  the  same  rights.  But  that,  if  the  law  was  violated  by  either 
party,  it  would  become  the  duty  of  the  government  to  step  in  and 
restrain  such  lawlessness. 

In  the  heat  and  zeal  of  religious  controversies  it  is  not  always  pos- 
sible to  prevent  the  followers  of  the  movement  at  least  from  stepping 
beyond  the  la\\',  and  if  the  movement  is  to  spread  throughout  the 
archipelago  we  may  expect  disturbances  at  various  points. 

The  feeling  against  the  friars,  which  has  already  been  referred  to 
in  a  number  of  reports,  lends  strength  to  this  movement.  The  exist- 
ence of  the  controversy  at  all,  however,  adds  one  more  to  the  burdens 
of  the  insular  government.  There  is  great  difficulty  in  maintaining  a 
course  by  the  government  which  shall  not  only  be  absolutely  impartial 
between  contending  religious  factions,  but  which  shall  seem  to  both 
sides  to  be  impartial. 

Respectfully,  Wm.  H.  Taft, 

Civil  Governor. 

The  Philippine  Commission,  Manila.  P.  I. 


REPORT  OF  THE  SECRETARY  OF  THE  INTERIOR. 


Department  of  the  Interior, 
Manila,. P.  /.,  Novemhei^  1,  1902. 
The  Phtlippine  Commission, 

Manila.,  P.  I. 

Gentlemen:  I  have  the  honor  to  present  my  first  annual  report, 
which,  unless  otherwise  expressly  stated,  covers  the  year  ending 
August  31,  1902. 

Act  No.  222,  providing  for  the  organization  of  the  departments  of 
the  interior,  commerce  and  police,  finance  and  justice,  and  public 
instruction,  enacted  September  6,  1901,  placed  within  the  executive 
control  of  the  department  of  the  interior,  the  bureau  of  public  health, 
the  quarantine  service  of  the  marine-hospital  corps,  the  bureau  of 
forestry,  the  bureau  of  mining,  a  bureau  of  agriculture,  a  bureau  of 
fisheries,  the  weather  bureau,  a  bureau  of  Pagan  and  Mohammedan 
tribes,  the  bureau  of  i^ublic  lands,  the  bureau  of  government  labora- 
tories, and  the  bureau  of  patents  and  copyrights. 

The  bureau  of  health,  the  quarantine  service  of  the  marine-hospital 
corps,  the  bureau  of  forestry,  the  bureau  of  mining,  the  weather 
bureau,  the  bureau  of  public  lands,  the  bureau  of  government  labora- 
tories, and  the  bureau  of  patents  and  copyrights,  were  organized  prior 
to  the  passage  of  act  No.  222.  The  bureau  of  agriculture  and  the 
bureau  of  non-Christian  tribes  have  since  been  organized. 

There  have  also  been  established  within  the  past  year  a  civil  hos- 
pital at  Manila  and  a  civil  sanitarium  at  Baguio,  Benguet,  for  the 
treatment  of  civil  officers,  employees,  and  members  of  their  families. 
Both  of  these  institutions  are  under  the  executive  control  of  the 
department  of  the  interior,  as  is  the  board  of  medical  examiners  pro- 
vided for  by  act  No.  310. 

THE    BOARD    OF    HEALTH    FOR    THE    PHILIPPINE    ISLANDS    AND 
THE  CITY  OF  MANILA. 

A  heavy  burden  of  work  has  rested  upon  the  insular  board  of  health 
from  the  time  of  its  organization.  The  board  consists  of  a  commis- 
sioner of  public  health,  a  sanitary  engineer,  a  chief  health  inspector, 
a  secretary,  and  ex  officio  the  superintendent  of  government  labora- 
tories. 

Lieut.  Col.  L.  M.  Maus,  deputy  surgeon-general,  U.  S.  Army,  was 
detailed  as  commissioner  of  public  health  on  July  26,  1901;  Maj. 
Franklin  A.  Mcacham  was  appointed  chief  health  inspector  August  9, 
1901;  Dr.  Paul  C.  Freer  entered  upon  the  discharge  of  his  duties  as 
superintendent  of  government  laboratories  August  9,  1901;  Dr.  Ma- 
nuel Gomez  was  appointed  secretary  of  the  board  August  9, 1901;  Capt. 
C.  W.  Mead,  city  engineer  of  Manila,  was  by  virtue  of  his  position 

321 


322  REPORTS    OF    TnE    OIVTL    GOVERNMENT 

the  sanitaiT  engineer  of  the  board  from  the  date  of  its  organization. 
With  the  exception  of  Dr.  Meacham,  who  had  been  a  member  of  the 
board  of  health  of  Manila  organized  under  the  military  government, 
while  serving  as  major  and  chief  surgeon,  U.  S.  Volunteers,  these  gen- 
tlemen were  all  new  to  their  duties.  Major  Meacham  resigned  from 
the  army  to  accept  appointment  as  chief  health  inspector. 

LEGISLATION    RECOMMENDED   BY   THE    BOARD. 

Act  No.  157  requires  the  insular  board  of  health  to  draft  and  rec- 
onnnend  to  the  central  legislative  body  of  the  islands  suitable  sanitary 
laws.  In  compliance  with  this  act  the  board  has  within  the  past  year 
drafted  and  recommended  to  the  Commission:  "An  act  regulating  the 
practice  of  medicine  and  surgery  in  the  Philippine  Islands;"  "An  act 
regulating  the  practice  of  pharmacy  in  the  Philippine  Islands;"  "An 
act  regulating  the  practice  of  dentistry  in  the  Philippine  Islands;" 
"An  act  regulating  the  practice  of  veterinary  medicine,  surgery,  and 
dentistry  in  the  Philippine  Islands;"  "An  act  providing  for  the  estab- 
lishment of  provincial  boards  of  health,  and  fixing  their  powers  and 
duties;"  "An  act  providing  for  the  establishment  of  municipal  boards 
of  health,  and  hxing  their  powers  and  duties;"  "An  act  providing  for 
the  compulsory  vaccination  of  the  inhabitants  of  the  Philippine 
Islands;"  "An  act  providing  for  the  control  and  suppression  of  leprosy 
in  the  Philippine  Islands;"  "An  act  regulating  the  manufacture,  sale, 
and  other  disposition  of  alcoholic  beverages  in  the  Philippine  Islands," 
and  "An  act  transferring  the  employees  of  the  board  of  health  of  the 
city  of  Manila  under  the  provost-marshal-general  to  the  board  of 
health  for  the  Philippine  Islands." 

The  presence  of  bubonic  plague  in  the  city  of  Manila  made  it  im- 
portant that  there  should  be  no  lapse  in  the  health  work  upon  the 
turning  over  of  the  city  government  to  the  civil  authorities,  and  the 
lirst  of  these  measures  to  be  considered  and  adopted  in  modified  form 
by  the  Commission  was  that  providing  for  transferring  the  old  employ- 
ees of  the  board  of  health  of  Manila  en  masse  to  the  insular  board  of 
health. 

An  act  providing  for  the  interment  or  burning  of  the  bodies  of  ani- 
mals which  die  having  rinderpest,  and  prohibiting  the  sale  or  use  of 
any  part  thereof,  was  enacted  October  11,  1901. 

ORGANIZATION    OF   PROVINCIAL    AND    MUNICIPAL    BOARDS    OF    HEALTH. 

.  The  next  necessity  was  deemed  to  be  adequate  provision  for  the 
extension  of  the  public  health  service  to  the  several  provinces  and 
municipalities  of  this  archipelago.  The  establishment  of  provincial 
boards  of  health  was  provided  for  by  act  No.  307,  enacted  on  December 
2,  1901,  and  that  of  municipal  boards  of  health  by  act  No.  308,  enacted 
upon  the  same  date. 

A  provincial  board  of  health  consists  of  a  president,  who  must  be  a 
dulv  qualified  physician,  the  president  of  the  municipal  board  of  health 
for^the  capital  of  the  province,  and  the  provincial  supervisor,  who  is 
required  by  law  to  be  a  civil  engineer.  The  provincial  secretary  acts 
as  secretary  for  the  board,  and  the  senior  medical  oflicer  of  the  Army 
or  Navy  of  the  United  States  on  duty  at  the  capital  of  the  province  is 
an  honorary  and  consulting  member,  but  is  not  entitled  to  vote.     The 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  323 

legal  adviser  of  the  board  is  the  provincial  fiscal.  The  only  burden 
imposed  upon  the  treasury  of  a  province  by  the  establishment  of  a 
provincial  board  of  health  is  the  salary  of  its  president. 

A  municipal  board  of  health  consists  of  a  president,  who  must  be  a 
duly  qualihed  physician  or  an  undergraduate  of  medicine,  a  member 
chosen  by  a  majority  vote  of  the  municipal  council,  a  male  school- 
teacher of  the  municipality  appointed  by  the  division  superintendent 
of  public  instruction  for  the  division  in  which  the  municipality  is  situ- 
ated, the  municipal  secretar}^  ex  officio,  and  a  pharmacist,  if  there  lie 
one  resident  within  the  municipality,  who  is  appointed  an  honorary 
member  of  the  board  by  the  municipal  president.  The  senior  medical 
officer  of  the  Army  or  Navy  of  the  United  States,  if  there  be  any  on 
duty  in  the  municipality,  is  an  honorary  and  consulting  member  of  the 
board.  The  municipal  secretary,  the  pharmacist  member,  and  the  mili- 
tary or  naval  member  are  not  entitled  to  vote. 

Presidents  of  provincial  boards  of  health  are  appointed  by  the  civil 
governor,  by  and  with  the  consent  of  the  Commission.  Presidents  of 
municipal  boards  of  health  are  appointed  by  the  commissioner  of  pub- 
lic health  upon  the  recommendation  of  the  provincial  board  of  health. 
Municipal  boards  of  health  are  subordinate  to  provincial  boards  of 
health,  which  in  their  turn  are  subordinate  to  the  board  of  health  for 
the  Philippine  Islands. 

The  time  for  the  organization  of  a  board  of  health  in  any  given 
province  is  determined  by  recommendation  of  the  insular  board  of 
health,  subject  to  the  approval  of  the  Secretarv  of  tlie  Interior. 
Municipal  boards  of  health  are  organized  at  such  time  as  the  provin- 
cial board  of  health  for  the  province  in  which  such  municipalities  are 
situated  directs  and  the  provincial  board  (consisting  of  the  provincial 
governor,  the  provincial  treasurer,  and  the  provincial  supervisor) 
approves. 

Grave  difficulties  have  been  encountered  in  putting  into  effect  this 
theoretical!}^  simple  system,  from  the  fact  that  in  UKuiy  of  the  munici- 
palities there  is  no  person  fitted  by  education  to  be  the  president  of  a 
municipal  board  of  health.  In  fact,  it  has  been  far  from  easy  to  secure 
a  sufficient  number  of  competent  phj^sicians  to  act  as  presidents  of 
provincial  boards  of  health. 

The  outbreak  of  cholera  made  it  necessary  to  extend  the  organization 
of  the  public  health  service  to  provinces  and  municipalities  much  more 
rapidly  than  was  originally  contemplated.  Provincial  boards  or  health 
have  been  established  in  all  the  provinces  except  Marinduque,  Masbate, 
Abra,  Lepanto-Bontoc,  and  Benguet.  Municipal  boards  of  health 
have  been  established  in  331  of  the  883  organized  municipalities  of  the 
provinces. 

The  presence  of  smallpox  at  a  number  of  points  in  the  archipelago 
attracted  attention  to  the  subject  of  vaccination,  and  led  to  the  adop- 
tion of  an  act  providing  for  the  compulsory  vaccination  of  the  inhab- 
itants of  the  Philippine  Islands,  on  December  2,  1901. 

The  receipt  of  numerous  complaints  that  persons  without  adequate 
medical  education  were  engaging  in  the  practice  of  medicine  led  to  the 
adoption  on  December  4,  lt>01,  of  an  act  regulating  the  practice  of 
medicine  and  surgery  in  the  Philippine  Islands. 

The  other  legislative  measures  recommended  by  the  insular  board 
of  health  have  not  3'et  been  considered  by  the  Commission. 


324  KKPOUTS    OF    TIIK    CIVIL    GOVERNMENT 

SERUM   AND   VACCINE   INSTITUTES. 

The  uri^ent  necessity  for  the  production  of  large  quantities  of  vaccine 
virus  and  of  antiphig-ue  and  antirinderpcstic  serums  led  to  the  estab- 
lishment, under  the  board  of  health,  of  an  institute  for  the  production 
of  vaccine  virus  and  of  serums  at  Manila,  and  of  a  vaccine  institute  at 
lloilo.  It  has  been  found  advisable  to  abandon  the  latter  institute,  as 
experience  has  demonstrated  the  practicability  of  shipping  vaccine 
virus  on  ice  to  all  coast  points  in  the  archipelago  without  serious 
danger  of  deterioration.  A  considerable  amount  of  antipestic  serum 
was  also  produced,  ])ut  the  outbreak  of  cholera  made  it  necessary 
temporarily  to  detail  Dr.  J.  W.  Jobling,  director  of  the  Serum  Insti- 
tute, for  work  in  the  Manila  cholera  hospitals,  where  he  rendered 
invaluable  service.  Unfortunately,  he  broke  down  physically  under 
the  long-continued  strain,  and  was  granted  leave  of  absence  for  recu- 
peration in  Japan.  The  work  of  the  institute  was,  however,  continued 
by  Dr.  Paul  C.  Freer,  superintendent  of  government  laboratories,  and 
Dr.  Richard  P.  Strong,  director  of  the  biological  laboratory,  as  soon 
as  cholera  decreased  sufficiently  at  Manila  to  relieve  them  of  unusual 
demands  upon  their  time.  At  present  antirinderpcstic  serum  is  being 
successfully  manufactured  in  quantities  sufficient  to  immunize  all  cattle 
imported  at  Manila,  and  it  is  hoped  soon  to  increase  the  output  so  as 
to  enable  the  insular  board  of  health  to  immunize  all  cattle  in  the 
vicinity  of  infected  areas  throughout  the  archipelago. 

CONTAGIOUS   DISEASE   HOSPITAL. 

The  commissioner  of  public  health,  by  virtue  of  his  office,  exercises 
direct  control  over  all  hospitals  for  contagious  diseases.  He  has  exer- 
cised such  control  during  the  joast  year  over  the  following  institutions: 
The  San  Lazaro  Hospital,  for  lepers  and  for  persons  suffering  from 
venereal  disease;  a  plague  hospital,  a  smallpox  hospital,  and  three 
cholera  hospitals,  all  in  the  city  of  Manila;  and  the  leper  hospital  at 
Palestina,  in  the  province  of  Ambos  Camarines. 

The  commissioner  of  public  health  was  further  directed  to  proceed 
to  Cebu  and  assume  control  over  the  leper  hospital  at  that  place,  but 
the  appearance  of  Asiatic  cholera,  when  he  was  about  to  sail ,  led  to  the 
withdrawal  of  these  instructions,  which  have  not  been  renewed,  as  a 
plan  for  the  segregation  and  care  of  all  lepers  in  the  archipelago  upon 
the  island  of  Culion  is  ready  for  submission  to  the  Commission. 

SPECIAL  WORK   OF   THE   BOARD   IN   MANILA. 

The  insular  board  of  health  acts  as  the  health  board  for  Manila.  In 
this  capacity  it  has  recommended  to  the  municipal  board  man}^  health 
ordinances,  nearly  all  of  which  have  been  adopted.  The  lack  of  a 
sewer  system  or  of  any  adequate  means  for  the  disposal  of  human 
excreta  is  a  standing  and  serious  menace  to  the  public  health  of  Manila. 
By  direction  of  the  Commission,  the  board  of  health  has  taken  upon 
itself  the  disposition  of  the  night  soil  of  the  city,  so  far  as  this  can  be 
collected  with  existing  facilities,  and  it  has  perfected  plans  for  the 
introduction  of  the  so-called  "pail  conservanc}'^  system."  Adequate 
appropriation  has  been  made  by  the  Commission  for  initiating  the 
installation  of  this  system,  which  has  begun  and  is  progressing 
favorably. 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  325 

An  immense  amount  of  sanitary  work  has  been  done  by  the  board 
and  its  employees.  Many  of  the  wonst  districts  of  the  city  have  been 
thoroughly  cleaned  and  a  strict  inspection  of  the  buildings  of  the  city 
has  been  maintained. 

EPIDEMICS. 

The  insular  board  of  health  has  been  subjected  to  a  severe  and  long 
continued  strain  by  the  presence  of  bubonic  plague  in  the  city  of 
Manila  at  the  time  of  its  organization,  and  by  the  cholera  epidemic 
which  began  at  Manila  on  March  20,  1902. 

(a)   bubonic  plague. 

Bubonic  plague  was  discovered  at  Manila  December  26,  1899,  and 
slowly  but  steadily  increased  up  to  December,  1901 ,  as  will  appear 
from  the  follow! nor  table: 


Months. 


1902. 


18 
48 
64 
64 
22 

juKe::. :;::....... 19 

13 

18 
6 

7 


January . 
February 
March . . . 

AprQ 

May 


July 

August 

September. 
October. 


7 
27 
63 
111 
137 
35 
39 
34 


November I  1 

December '  1 


Total 


The  deaths  in  1900  numbered  199,  and  in  1901  reached  a  total  of 
432.  The  disease  was  at  its  worst  each  year  during  the  hot,  dry 
months  of  March,  April,  and  May,  nearly  or  quite  disappearing  dur- 
ing September,  October,  November,  and  December.  It  will  be  noted 
that  the  number  of  cases  in  1901  exceeded  that  in  1900  by  200,  while 
the  number  of  deaths  was  about  two  and  a  half  times  as  great,  and  the 
percentage  of  mortality  among  persons  attacked  increased  from  73.4 
in  1900  to  91.7  in  1901. 

This  heavy  increase  in  plague  for  the  year  1901  justified  the  appre- 
hension that  a  severe  epidemic  would  occur  in  1902.  Strenuous  eli'orts 
were  made  to  improve  the  general  sanitarj^  condition  of  the  city,  but 
the  habits  of  the  Chinese  residents  and  the  lower  class  of  Filipinos 
were  such  as  to  render  the  enforcement  of  proper  sanitary  regulations 
well-nigh  impossible. 

On  account  of  the  important  part  which  house  rats  are  known  to 
play  in  the  distribution  of  bubonic  plague,  a  systematic  campaign  was 
inaugurated  against  these  rodents  in  Manila.  Policemen,  sanitary 
inspectors,  and  specially  appointed  rat  catchers  were  furnished  witii 
traps  and  poison,  and  both  traps  and  poison  were  distributed  to  private 
individuals  under  proper  restrietions.  A  bou)ity  was  paid  for  all  rats 
turned  over  to  the  health  authorities,  and  stations  were  established  at 
convenient  points  throughout  the  city  where  they  could  be  received. 
Each  rat  was  tagged  with  the  street  and  number  of  the  building  or  lot 
from  which  it  came,  was  dropped  into  a  strong  antiseptic  solution, 


320  RKl'OUTS    OK    TIIK    CIVIL    (JOVKUNMENT 

aud  eventually  sent  to  the  Biological  Laboratory,  where  it  was  sub- 
jected to  a  bacteriological  examination  for  plague.  During  the  iirst 
two  weeks  1.8  per  cent  of  the  rats  examined  were  found  to  be  infected. 
This  proportion  steadily  increased,  reaching  the  alarming  maximum 
of  2.3  per  cent  in  October.  At  this  time  numerous  rats  were  found 
dead  ot  plague  in  the  infected  districts,  and,  in  view  of  the  fact  that 
epidemics  of  plague  among  the  rats  of  a  city  in  the  past  have  been  uni- 
formily  followed  by  epidemics  among  human  beings,  the  gravest 
apprehension  was  felt,  the  rapid  spread  of  the  disease  among  the  rats 
after  the  weather  had  become  comparatively  dry  being  a  particularly 
unfavorable  symptom. 

It  was  deemed  necessary  to  prepare  to  deal  with  a  severe  epidemic, 
and  a  permanent  detention  camp,  capable  of  accommodating  1,500  per- 
sons, was  accordingly  established  on  the  grounds  of  the  San  Lazaro 
Hospital.  Hoping  against  hope,  the  board  of  health  redoubled  its 
efforts  to  combat  the  disease.  The  force  of  sanitary  inspectors  was 
greatly  increased,  and  under  the  able  supervision  of  Dr.  Meacham 
their  work  was  brought  to  a  high  degree  of  efficiency.  Frequent 
house-to-house  inspections  were  made  in  all  parts  of  the  city  where  the 
disease  was  known  to  exist.  The  sick  were  removed  to  the  hospital  if 
practicable;  otherwise  they  were  cared  for  where  found  and  the  spread 
of  infection  guarded  against. 

Plague  houses  were  thoroughly  disinfected,  and  their  owners  were 
compelled,  under  the  direction  of  the  assistant  sanitary  engineer,  to 
make  necessary  alterations.  Cement  ground  tloors  were  laid,  double 
walls  and  double  ceilings,  affording  a  refuge  for  rats,  were  removed, 
defects  in  plumbing  were  remedied,  whitewash  was  liberally  used,  and, 
in  general,  nothing  was  left  undone  that  could  render  buildings  where 
plague  had  occurred  safe  for  human  occupancy.  Buildings  incapable 
of  thorough  disinfection  and  renovation  Svere  destroyed.  Buildings  in 
which  plague  rats  were  taken  were  treated  exactly  as  were  those  wnere 
the  disease  attacked  the  human  occupants.  The  bacteriological  exami- 
nation of  rats  enabled  the  board  of  health  to  follow  the  pest  into  its 
most  secret  haunts  and  fight  it  there,  and  was,  I  believe,  the  most 
important  factor  in  the  winning  of  the  great  success  which  was  ulti- 
mately achieved. 

With  very  few  exceptions,  there  was  no  recurrence  of  plague  in 
buildings  which  had  been  disinfected  and  renovated.  As  center  after 
center  of  infection  was  found  and  destroyed  the  percentage  of  diseased 
rats  began  to  decrease,  and  in  January,  1902,  when,  judging  from  the 
history  of  previous  years,  plague  should  have  again  begun  to  spread 
among  human  beings,  there  was  not  a  single  case.  In  February  1 
case  occurred.  In  March  there  were  2  cases,  as  against  63  in  March 
of  the  preceding  year,  and  before  April  the  disease  had  completely 
disappeared. 

This  result,  brought  about  at  a  time  when  the  epidemic  would,  if 
unchecked,  have  reached  its  height  for  the  year,  marked  the  end  of  a 
fight  begun  by  the  board  of  health  on  the  day  of  its  organization  and 
prosecuted  unremittingly  under  adverse  conditions  for  seven  months 
with  a  degree  of  success  which,  so  far  as  I  know,  has  not  been  equaled 
under  similar  conditions  in  the  history  of  bubonic  plague. 

Especial  credit  is  due  to  Chief  Health  Inspector  Meacham  for  the 
ingenuit}'  which  he  displayed  in  devising  means  for  the  destruction  of 
rats  and  for  the  tireless  energy  with  which  ho  devoted  himself  to  sccur 


OF    THE    PHILIPPINE    ISLANDS,    li)00-1903.  327 

ing  their  adoption,  and  to  increasing  the  efficiency  of  his  force  of 
inspectors,  as  well  as  to  Drs.  J.  W.  Jobling  and  Edward  A.  Southali 
and  their  assistants,  who  worked  unremittingly  at  the  uncongenial  and 
dangerous  task  of  making  a  bacteriological  examination  of  rats,  a  large 
proportion  of  which  were  putrid,  while  not  a  few  of  them  were  infected 
with  one  of  the  most  fatal  of  diseases.  This  work  was  of  necessity 
conducted  in  the  inadequate  building  in  which  it  has  been  necessary 
temporarilj^  to  house  the  bureau  of  Government  laboratories,  in  close 
proximity  to  the  civil  hospital.  The  fact  that  not  a  single  case  of 
infection  occurred  among  the  laboratory  force  or  the  inmates  of  the 
hospital  is  sufficient  commentary  upon  the  care  with  which  it  was 
performed. 

During  1901  plague  appeared  at  several  points  in  the  provinces  near 
Manila.  Agents  of  the  board  of  health  were  promptly  dispatched  to 
the  infected  municipalities  and  radical  remedial  measures  were  adopted, 
including  in  several  instances  the  burning  of  infected  buildings,  the 
result  being  the  complete  disappearance  of  plague  in  the  provinces  as 
well  as  in  Manila. 

(6)    THE    CHOLERA    EPIDEMIC. 

On  March  3,  1902,  notification  was  received  at  Manila  that  Asiatic 
cholera  had  appeared  at  Canton,  China,  and  on  the  8th  of  March  it  was 
reported  at  Hongkong.  As  a  considerable  part  of  the  green  vegeta- 
bles imported  at  Manila  come  from  Canton  and  its  vicinity,  the  United 
States  quarantine  officer  at  Hongkong  was  immediately  notified  that 
no  vegetables  not  certified  to  by  him  would  be  admitted,  and  an  order 
absolutely  forbidding  the  importation  of  such  vegetables  was  issued 
by  the  chief  quarantine  officer  on  March  19.  Health  inspectors  were 
warned  to  be  on  the  lookout  for  persons  suffering  from  bowel  trouble 
of  a  suspicious  character. 

On  March  20  the  board  of  health  was  advised  that  two  patients  at 
the  San  Juan  de  Dios  Hospital  were  developing  symptoms  of  Asiatic 
cholera.  They  were  immediately  visited  by  the  commissioner  of  pub- 
lic health,  the  chief  health  inspector,  the  superintendent  of  Govei'n- 
ment  laboratories,  and  by  Dr.  Strong,  director  of  the  biological 
laboratory,  who  took  specimens  of  their  dejecta  for  bacteriological 
examination.  Cultures  were  at  once  prepared  and  the  following  morn- 
ing the  presence  of  a  comma  bacillus  was  demonstrated  in  hanging- 
drop  slides.  Two  more  suspicious  cases  had  developed  during  the 
night.  In  the  absence  of  the  acting  civil  governor  I  communicated 
to  General  Chaffee  the  fact  that  four  cases  of  suspected  cholera  had 
occurred,  and  requested  him  to  have  an  adequate  force  in  readiness  to 
proceed  to  the  Mariquina  Valley  and  protect  the  city  watei-  supply. 

On  March  21  the  characteristic  "cholera  red"  reaction  was  secured 
from  cultures.  On  March  22  Dr.  Strong  reported  officially  to  the 
commissioner  of  public  health  the  presence  of  Asiatic  cholera.  Mean- 
while additional  cases  were  occurring  with  increasing  frequency. 
General  Chaffee  was  informed  of  these  facts  and  was  requested  to 
establish  an  armed  patrol  along  the  Maricjuina  Kiver  from  the  intake 
of  the  city  water  supply  up  to  and  beyond  Montalban,  the  last  town 
on  the  river.  The  distance  from  the  intake  to  Montalban  is  about  12 
miles,  and  the  population  inhabiting  this  part  of  the  Mariquina  Valley 
is  estimated  at  14,000.  A  considerable  number  of  these  people  gel 
their  drinking  water  from  the  river,  and  a  still  larger  number  use  it 


328  REPORTS    OF    THE    CIVIL    G(nn<:RNMENT 

for  bathing  purposes  and  for  washing  soiled  clothing.  As  many  of 
the  inhabitants  arc  accustomed  to  make  daily  trips  to  Manila,  the  dan- 
ger that  they  would  take  back  cholera  with  them  was  manifestly  great. 
In  spite  of  a  most  stringent  quarantine,  cholera  eventually  broke  out 
in  the  Mariquina  Valley,  but  it  was  held  closely  in  check,  and,  thanks 
to  the  elhciency  of  the  river  patrol,  the  water  supply  of  Manila  has 
been  kept  free  from  infection  up  to  the  present  time.  In  achieving 
this  well-nigh  impossible  result  the  army  has  made  it  possible  to 
avert  a  general  epidemic  in  Manila  and  has  saved  thousands  of  lives. 
The  difficulties  of  the  task  can  be  appreciated  only  by  those  thoroughly 
familiar  with  the  conditions  which  have  been  met,  and  the  results 
accomplished  bear  eloquent  testimony  to  the  value  of  land  quarantine. 

CHOLERA   WORK   IN   MANILA. 

There  are  in  Manila  a  large  number  of  shallow  wells  in  close  prox- 
imity to  water-closets  and  very  likely  to  be  infected  by  surface  drain- 
age. The  board  of  health  had  been  making  detailed  bacteriological 
examinations  of  these  wells,  condemning  such  as  proved  to  be  in  a 
dangerous  condition.  Under  the  circumstances  it  was  deemed  neces- 
sary to  abandon  this  slow  procedure.  All  wells  were  ordered  closed. 
The  work  of  closing  them  was  pushed  with  great  energy  by  Mr.  J.  L. 
Mudge,  superintendent  of  citj'^  streets,  parks,  bridges,  docks,  and 
wharves,  and  as  a  result  what  subsequently  proved  one  of  the  main 
sources  of  infection  in  many  provincial  towns  was  eliminated  in  Manila. 

As  soon  as  cholera  was  definitely  known  to  exist  the  officer  in  charge 
of  the  government  ice  plant  was  directed  to  increase  the  output  of  dis- 
tilled water  to  the  limit,  and  the  use  of  all  water  which  could  be  spared 
from  the  arm}^  distilling  plant  was  secured.  Transportation  was  ob- 
tained from  the  city  as  well  as  from  the  army,  and  water  stations  were 
established  in  the  markets,  on  the  water  front,  on  the  most  crowded 
thoroughfares,"  and  in  those  districts  of  the  city  where  the  absence  of 
city  water  and  the  closing  of  wells  seemed  likely  to  cause  hardship. 
Distilled  water  for  drinking  purposes  was  distributed  free  of  charge. 
The  Chinese  used  it  liberally  from  the  outset.  The  more  ignorant  of 
the  Filipinos  at  first  imagined  that  the  health  authorities  were  attempt- 
ing to  poison  them,  but  their  fears  were  soon  allayed,  and  as  the 
demand  for  distilled  water  increased  it  became  necessary  to  send  two 
perambulating  water  carts  of  large  capacity  about  the  streets. 

It  was  soon  noted  that  the  disease  was  nearly  confined  to  what  is 
known  as  the  Farola  (light-house)  district,  included  between  the  Bay 
of  Manila,  the  north  bank  of  thePasig  River,  and  a  tide  creek  connect- 
ing the  Pasig  with  the  Bay,  where  an  aggregation  of  overcrowded  and 
filthy  shacks  presented  conditions  favorable  to  its  spread.  For  several 
days  a  strong  efi'ort  was  made  efi'ectively  to  quarantine  this  district, 
but  numerous  persons  escaped  by  water  under  cover  of  darkness.  The 
conditions  were  ^uch  as  to  render  thorough  disinfection  impossible. 
The  disease  spread  rapidly  among  the  imprisoned  people  and  a  contin- 
uation of  the  quarantine  would  hav^e  heen  inhuman.  I  therefore 
ordered  the  inhabitants  removed  to  the  San  Lazaro  detention  camp 
and  the  district  burned  over.  The  removal  was  eft'ected  on  March  25. 
Houses  and  such  personal  propert}^  as  could  not  be  disinfected  were 
invoiced  on  the  26th  and  burned  on  the  27th. 

Cholera  immediately  developed  in  Mae  detention  camp,  but  the  people 


OV    THE    PHILIPPINE    ISLANDS,    1900-1903.  329 

confined  there  were  kept  under  constant  surveillance  and  those  who 
began  to  sicken  were  immediately  isolated,  so  that  there  was  no  spread 
of  infection.  The  last  case  among  the  people  of  the  Farola  di;strict 
occurred  within  forty-eight  hours  of  their  entering  camp.  The}'  were 
ready  to  release  five  days  thereafter. 

For  several  days  after  the  Farola  district  was  burned  there  was  a 
decided  decrease  in  the  number  of  cases  of  cholera,  but  the  cases  which 
did  occur  were  widely  scattered  over  the  city,  and  investigation  showed 
that  in  most  instances  the  persons  attacked  had  escaped  from  the  Farola 
district  while  we  were  attempting  to  quarantine  it.  Cholera  also 
began  to  develop  in  the  municipalities  about  the  bay,  where  it  was 
carried  by  persons  escaping  from  this  district  in  small  boats.  I  believe 
that  if  the  measures  finally  resorted  to  had  been  taken  three  days 
sooner  the  epidemic  might  have  been  averted.  Later  experience  in 
provincial  towns  has  fully  demonstrated  the  efficacy  of  radical  measures 
if  promptly  adopted. 

The  disease  was  very  malignant,  more  than  90  per  cent  of  the  early 
cases  resulting  fatally.  General  Chaffee  was  asked  to  furnish  medical 
officers,  and  gave  us  every  physician  he  could  spare.  The  city  was 
divided  into  twelve  sanitary  districts,  each  in  charge  of  a  medical 
officer  with  30  to  60  men  under  him.  The  sale  of  fruits,  vege- 
tables, and  foods  likely  to  carry  cholera  was  prohibited,  and  a  rigid 
inspection  established  over  markets,  restaurants,  and  shops  Avhere 
articles  of  food  were  sold  or  consumed.  House  to  house  inspection 
was  kept  up  day  and  night.  All  cholera  cases  discovered  were  re- 
moved to  cholera  hospitals  if  practicable,  and  contacts,  if  found,  were 
taken  to  a  detention  camp.  Cholera  houses  were  quarantined  until  they 
could  be  disinfected.  At  first  nipa  shacks  were  burned  in  many 
instances.  This  practice  provoked  great  hostilit}'^  among  the  poorer 
people,  and  was  later  abandoned  in  favor  of  thorough  disinfection. 

Autopsies  were  made  upon  all  supposed  cholera  victims  in  order  that 
diagnosis  might  be  certain  and  that  the  possibility  of  unjustly  detain- 
ing persons  as  cholera  contacts  might  be  avoided.  This  dangerous 
work  was  performed  by  Dr.  Richard  P.  Strong,  Dr.  J.  W.  Jobling, 
and  Dr.  J.  B.  Thomas,  assisted  by  Mr.  Norman  Williams. 

Relatives  were  allowed  to  claim  their  dead  and  bury  them  in  quick- 
lime, under  the  supervision  of  health  officers,  but  bodies  not  claimed 
within  twenty-four  hours  were  cremated. 

CHOLERA   HOSPITALS  AND   DETENTION   CAMPS. 

Fortunately  a  well  equipped  permanent  detention  camp,  capable  of 
accommodating  1,500  people,  had  been  constructed  in  anticipation  of 
an  epidemic  of  bubonic  plague,  and  was  available  at  the  outset.  The 
capacity  of  this  camp  was  materially  increased  by  the  erection  of  tents 
furnished  by  the  army.  A  detention  hospital  for  the  contacts  who 
showed  signs  of  illness,  and  a  cholera  hospital  for  those  who  developed 
cholera  in  the  detention  hospital  or  elsewhere  in  the  city,  were  estab- 
lished in  tents  near  the  detention  camp  upon  the  San  Lazaro  estate. 

Great  difficulty  was  experienced  in  organizing  a  satisfactory  cholera 
hospital  and  in  securing  competent  physicians  and  nurses  for  it.  Two 
physicians  were  tried  and  found  wanting.  Drs.  J.  W.  Jobling  and 
T.  K.  Hunt,  who  had  orgrnized  a  very  successful  emergency  hospital 
in  the  Farola  district,  were  then  put  in  charge,  and  proved  to  be  admi- 


OoO  KEPORTS    OK     rilK    dlVlL    (JOVERNMENT 

mblc  men  for  this  trying  and  dim  gcrous  post.  Surrounded  by  the  dying 
and  the  dead,  tlioy  Nvorkcd  unrcniitting-ly  for  tiic  lives  of  their  patients  for 
eight  weeks,  relieving  each  other  every  twelve  hours.  At  the  expira- 
tion of  this  time  they  were  both  completely  worn  out,  and  it  was 
necessary  to  vacate  the  hospital  for  thorough  disinfection. 

Male  nurses  were  secured  without  diiliculty  and  faithfully  and 
courageously  performed  their  duties.  No  female  nurses  could  be 
obtained  until  March  28,  when  Miss  Anna  M.  Seagran  and  Miss  Mario 
A.  Kolp  volunteered.  The  following  day  Miss  Elsie  Weinberg  also 
volunteered.  The  presence  of  these  brave  and  ethcient  women  was  a 
blessing  to  the  patients  and  resulted  in  greatly  improving  the  condi- 
tion of  the  hospital,  which  soon  became  as  satisfactor}^  as  a  tent  hos- 
pital in  the  Tropics  can  be  made.  The  strain  to  which  every  one 
connected  with  this  hospital  was  subjected  can  be  appreciated  only  by 
those  who  have  seen  Asiatic  cholera  at  its  worst.  The  last  offices  for 
the  dying  were  necessarily  perfoimed  by  the  phj^sicians  and  nurses,  as 
no  minister  of  the  gospel,  Protestant  or  Catholic,  ever  visited  the 
place. 

Before  the  San  Lazaro  detention  camp  and  cholera  hospital  became 
full  a  detention  camp  for  persons  desiring  to  leave  Manila,  a  detention 
camp  for  cholera  contacts,  and  a  cholera  hospital  were  established  at 
Santa  Mesa  upon  high  ground,  the  use  of  which  for  this  purpose  was 
generously  donated  by  Seiior  Juan  M.  Tuason.  Here,  as  at  San  Lazaro, 
difficulty  was  at  first  experienced  in  getting  a  suitable  man  to  take 
charge,  but  under  the  very  able  administration  of  Dr.  Thomas  R.  Mar- 
shall work  at  the  Santa  Mesa  camps  and  hospital  was  soon  brought  to 
a  high  degree  of  efficiency. 

Meanwhile  the  Spanish  residents  had  requested  and  received  permis- 
sion to  establish  a  hospital  where  they  might  be  cared  for  by  their  own 
physicians,  under  general  supervision  of  the  insular  board  of  health, 
and  had  secured  the  spacious  building  formerly  used  by  the  army  for 
the  Second  Reserve  Hospital.  They  had  expended  a  large  sum  in  prop- 
erly equipping  this  building,  and  a  corps  of  Spanish  physicians,  friars, 
and  sisters  of  charity  was  in  attendance.  This  institution  was  named 
the  Santiago  Hospital. 

As  our  cholera  hospitals  in  tents  were  necessarily  unsatisfactory,  the 
commissioner  of  public  health  requested  permission  to  use  a  consid- 
erable part  of  the  Santiago  Hospital,  which  atforded  far  more  space 
than  was  required  by  the  sick  among  the  Spanish  population.  His 
request  was  promptly  granted  by  the  public-spirited  gentlemen  in 
charge;  and  this  institution,  which  affords  good  accommodations  for 
Spaniards,  other  Europeans,  Filipinos,  and  Americans,  with  separate 
wards  for  the  different  nationalities  and  the  two  sexes,  has  been  a  most 
important  factor  in  the  saving  of  life.  The  building  is  large,  cool,  well 
ventilated,  and  easil}^  disinfected.  It  stands  at  the  center  of  a  lot  of 
some  29,000  square  meters,  inclosed  by  a  high  wall,  and,  although  this 
lot  is  located  in  the  populous  district  of  Malate,  the  isolation  of  the 
building  is  complete. 

OPPOSITION   TO   CHOLERA   WORK    IN   MANILA. 

As  was  to  be  anticipated,  the  rigorous  measures  against  cholera 
enforced  by  the  insular  board  of  health  provoked  bitter  opposition 
from  the  first.     For  weeks  the  presence  of  cholera  was  denied  by  igno- 


OF    THE    PHILIPPINE    ISLANDS,    1900-190^.  331 

r:iiit,  misinformed,  and  ill-intentioned  persons.  The  more  ignorant 
Filipinos  refused  to  believe  in  its  existence  because  the  daily  deaths  did 
not  reach  up  into  the  thousands.  The  minds  of  the  common  people 
were  poisoned  by  tales  of  horril)le  abuses  in  the  detention  camps,  and 
of  deliberate  murder  of  patients  at  the  cholera  hospitals.  The  story 
was  widely  circulated  that  the  houses  of  the  poor  were  burned  in  order 
to  make  room  for  the  future  dwellings  and  warehouses  of  rich  Ameri- 
cans. These  absurd  tales  gained  credence  among  the  populace,  and, 
together  with  some  actual  abuses  committed  by  ignorant,  inexperienced, 
or  overzealous  health  inspectors,  produced  a  state  of  popular  apprehen- 
sion which  proved  a  very  serious  factor  in  the  situation,  as  it  led  to  the 
concealment  of  the  sick,  the  escape  of  contacts,  and  the  throwing  of 
dead  bodies  into  the  esteros  and  the  Pasig  River,  the  polluted  waters 
of  which  were  fruitful  sources  of  infection. 

Unfortunately  the  opposition  was  by  no  means  confined  to  the  more 
ignorant  classes.  At  the  outbreak  of '^ the  epidemic  a  mass  meeting  of 
the  Spanish  and  Filipino  physicians  was  held.  When  asked  whether 
they  would  cooperate  with  the  board  of  health  they,  without  excep- 
tion, promised  to  do  so.  I  regret,  however,  to  record  the  fact  that, 
with  few  exceptions,  they  not  only  failed  to  give  active  assistance,  but 
in  many  instances,  by  neglecting  to  report  cholera  cases,  by  falsely 
reporting  them,  and  by  decrying  the  sanitary  measures  deemed  neces- 
sary by  the  authorities,  added  materially  to  the  crushing  burden  which 
rested  upon  the  board  of  health.  I  take  pleasure  in  calling  attention 
to  several  noteworthy  exceptions  to  this  general  rule.  Dr.  Ariston 
Bautista  Lim,  the  ablest  of  the  Filipino  physicians  of  this  capital, 
neglected  his  private  practice  and  devoted  much  valuable  time  to 
assisting  the  insular  board  of  health,  both  in  the  city  and  in  the 
provinces.  His  services  were  invaluable.  Dr.  Manuel  Gomez,  secre- 
tary of  the  board  of  health,  did  a  large  amount  of  investigation  and 
emergency  work,  and  1  desire  to  commend  him  and  Dr.  Luis  Arbella, 
a  chief  medical  inspector,  not  only  for  the  efficiency  with  which  they 
discharged  the  duties  assigned  them,  but  for  their  valuable  services  in 
helping  to  allay  ungrounded  popular  apprehension. 

When  it  became  known  that  the  Santiago  Cholera  Hospital  was  to 
be  established  I  was  visited  by  the  heads  of  two  important  bureaus  of 
the  government,  who  presented  petitions  against  my  proposed  action 
signed  by  numerous  government  officers  and  employees.  Declining 
to  accede  to  these  petitions,  I  was  later  threatened  with  injunction 
proceedings.  In  this  connection  it  is  worthy  of  note  that  not  a  single 
case  of  infection  has  been  traceable  to  the  Santiago  Hospital,  which 
saved  the  lives  of  many  Americans,  including  one  of  the  petitioners 
against  its  establishment. 

RESULTS   OF   CHOLERA   WORK   IN    MANH.A. 

The  measures  enforced  by  the  board  of  health  in  Manila  were  strik- 
ingly successful  for  months.  With  its  congested  population,  its  lack 
of  any  adequate  system  for  the  disposal  of  human  excreta,  and  its 
many  insanitary  districts,  the  city  affords  a  natural  breeding  ground 
for  cholera.  llie  maximum  of  daily  cases  during  the  first  three 
months  was  38,  on  May  1,  and  when  this  maximum  had  been  reached 
a  steady  decline  began.  During  the  second  week  of  May  the  drop 
was  so  marked  as  to  lead  the  commissioner  of  public  health  to  believe 


Ho2  KKI'OKTS    OK    TIIK    CIVIL    OOVKRNMKNT 

that  the  end  of  the  epidemic  was  at  luind,  and  on  May  10  he  made 
wholesale  reductions  in  the  force  of  sanitary  inspectors  and  cnicri-cncy 
employees.  This  action  was  disapproved  by  the  remaining  members 
of  the  board,  but  as  the  disease  continued  to  decrease  for  some  days 
after  the  reduction,  the  logic  of  events  at  lirst  seemed  to  justify  liis 
action. 

Within  a  short  time,  however,  there  began  a  slow  but  steady 
increase  in  the  daily  cases.  This  increase  was  called  to  the  attention 
of  the  commissioner  of  public  health  by  me  when  the  daily  cases 
reached  12,  and  again  when  they  reached  20  to  25.  When  they  rose 
to  36,  on  June  20,  he  was  warned  that  the  situation  was  becoming 
serious.  He  did  not  so  regard  it,  but  was  nevertheless  instructed  that 
energetic  measures  must  be  adopted.  At  this  time  I  was  compelled 
by  ill  health  to  go  to  the  mountains  of  Benguet  for  live  weeks.  During 
my  absence  the  number  of  daily  cases  increased  quite  steadily  until 
July  26,  when  91  were  recorded,  this  proving  to  be  the  maximum  for 
the  epidemic  in  Manila. 

On  July  31  the  detail  of  Colonel  Maus  as  commissioner _  of  pul)lic 
health  terminated.  From  the  day  of  his  appointment  to  this  position 
he  had  worked  with  tireless  energy,  sacrificing  himself  as  few  men 
would  have  been  willing  to  do  for  the  public  good.  From  the  begin- 
ing  of  the  cholera  epidemic  he  had  been  subjected  to  a  heavy  and  con- 
tinuous strain,  which,  at  the  time  he  was  relieved,  had  resulted  in 
extreme  mental  and  physical  exhaustion.  I  desire  to  express  my  deep 
appreciation  of  the  faithfulness  and  energy  which  he  displayed  in  the 
discharge  of  his  duties  while  commissioner  of  public  health. 

On  August  1  Dr.  Frank  S.  Bourns,  who  had  been  chief  health  officer 
of  Manila  for  more  than  a  year  under  military  rule,  and  whose  long 
residence  in  the  Philippines  had  peculiarly  fitted  him  to  deal  success- 
fully with  the  Filipinos,  was  temporarily  appointed  commissioner  of 
public  health  by  the  acting  civil  governor,  and  sacrificed  his  private 
interests  in  order  to  undertake  a  thankless  task  at  a  critical  time. 

The  hostility  of  the  Spanish  and  native  physicians  had  reached  a 
climax  at  the  time  of  his  appointment.  By  making  certain  changes  in 
policy  he  succeeded  in  allaying  to  a  large  extent  the  hostility  of  the 
native  physicians  and  in  securing  from  them  a  considerable  degree  of 
cooperation.  During  the  four  weeks  from  July  6  to  August  2  there 
were  1,222  cases  of  cholera  in  Manila.  During  the  four  weeks  ending 
August  31  the  number  of  cases  fell  to  668;  during  the  month  ending 
September  30  it  was  296,  and  during  the  month  ending  October  31  it  was 
88.  The  total  number  of  cases  from  the  beginning  of  the  epidemic  to 
date  has  been  4,174.  Estimating  the  inhabitants  at  302,000, 1.38  per  cent 
of  the  population  have  been  attacked.  In  view  of  the  fact  that  nowhere 
in  the  archipelago  are  conditions  so  favorable  to  a  great  epidemic,  the 
value  of  strictly  enforced  sanitary  measures  is  strikingly  sho^yn  by 
contrasting  this  result  with  what  has  occurred  in  many  of  the  provincial 
municipalities  where  the  disease  appeared  at  a  much  later  date  than  at 
Manila,  but  where  time  was  lost  in  enforcing  the  necessary  health  regu- 
lations or  where  it  was  impossible  to  enforce  them  at  all.  In  Hagonoy 
21.6  per  cent  of  the  population  was  attacked;  in  Macabebe,  32  per 
cent;  in  Orani,  18.7  per  cent;  in  Dumangss,  13.9  per  cent.  Other 
towns  from  which  reliable  statistics  are  not  yet  at  hand  are  reported 
to  have  suffered  still  more  severely. 


OB'    THE    PHILIPPINE    ISLANDS,    1900-1903.  333 

THE    EPIDEMIC   IN   THE   PROVINCES. 

During  the  early  days  of  the  epidemic  quarantine  guards  were  placed 
on  all  roads,  paths,  and  streams  leading  out  from  Manila,  a  water 
patrol  was  established  on  the  bay,  and  all  vessels  leaving  Manila  were 
quarantined  five  days  at  Mariveles,  and  for  a  longer  period  if  cholera 
developed  on  board.  No  one  but  a  health  officer  could  lawfully  leave 
the  city  without  a  pass.  The  spread  of  the  disease  to  the  provinces 
was  thus  greatly  retarded  and  its  transmission  by  large  vessels  leaving 
Manila  was  almost  entirely  prevented,  but  it  was  carried  by  native 
canoes  to  the  towns  about  the  bay,  and  Avas  then  widely  disseminated 
by  small  sailing  vessels,  the  movements  of  which  could  not  be  con- 
trolled^ Furthermore,  it  was  impossible  to  prevent  the  escape  over- 
land of  people  by  night,  or  even  by  day,  if  they  choose  to  make  their 
way  through  the  fields.  What  General  Otis  could  not  accomplish 
with  thousands  of  soldiers  was  an  impossibility  for  the  board  of  health, 
aided  by  the  city  police  and  a  few  hundred  men  from  the  insular  con- 
stabulary. 

Cholera  appeared  in  the  provinces  as  follows:  Bulacan,  March  23; 
Cavite,  March  27;  Bataan,  March  28;  Ambos  Camarines  and  Rizal, 
April  2;  Laguna,  April  7;  Pampanga,  April  13;  Fangasinan,  April 
2i;  Tarlac,  April  28;  Nueva  Ecija,  May  8;  Leyte,  May  9;  Batangas, 
May  24;  Samar,  May  29;  Mindoro,  June  10;  Tayabas,  June  13;  Zam- 
bales  and  Marinduque,  July  1;  Benguet,  July  4;  Cebu,  July  14; 
Union,  July  15;  Western  Negros,  August  26;  Iloilo,  August  28; 
Surigao,  September  5;  Capiz,  September  8;  Eastern  Negros,  Sep- 
tember 29;  Misamis  and  Antique,  October  2;  Sorsogon,  October  15; 
Romblon,  October  31.  In  each  new  region  where  the  disease  appears 
it  is  very  malignant  at  first,  spreading  rapidly  and  causing  a  very 
high  mortality,  but  with  the  lapse  of  time  it  tends  gradually  to 
decrease  in  intensity  and  finally  to  disappear. 

The  strain  imposed  upon  provincial  and  municipal  boards  of  health 
by  the  appearance  of  cholera  so  soon  after  their  organization  was 
necessarily  very  severe.  In  some  cases  they  have  responded  to  it 
nobly,  and  in  others  they  have  gone  down  under  it.  The  insular 
board  of  health  has  done  all  in  its  power  to  check  the  epidemic  in  the 
provinces  by  furnishing  medicines  and  disinfectants  and  by  sending 
experienced  medical  officers  to  those  places  where  the  situation  has 
become  most  serious.  Invaluable  assistance  has  been  rendered  in  the 
provinces,  under  orders  from  General  Chaffee,  by  the  army  surgeons, 
who,  with  few  and  insignificant  exceptions,  have  cooperated  heartily 
with  the  civil  health  authorities,  where  any  existed,  and  have  taken 
entire  control  and  fought  a  good  fight  in  many  places  where  there 
were  no  local  civil  health  officers.  The  efficacy  of  proper  sanitary 
measures  has  been  demonstrated  over  and  over  again  by  the  prompt 
and  complete  stamping  out  of  cholera  in  provincial  municipalities 
where  the  population  is  uniformly  much  less  congested  than  in  Manila. 
The  disease  has  now  practically  disappeared  from  the  provinces  of 
Bulacan,  Pampanga,  15ataan,  Rizal,  Ambos  Camarines,  Marinduque, 
Tarlac,  Laguna,  Batangas,  Nueva  Ecija,  Zambales,  Cebu,  Pangasinan, 
North  and  South  Ilocos,  Leyte,  and  Union.  It  is  still  raging  with  con- 
sideral)le  violence  in  the  province  of  Iloilo. 

The  total  number  of  cases  reported  in  the  provinces  up  to  date  is 
103,076,  with  66,837  deaths.     Adding  the  4,174  cases  and  the  3,146 
23181—04 22 


384 


KKI'OHTS    OF    THE    CIVIL    (1(»\' KUNMKNT 


deaths  which  have  occurred  in  Manila,  the  grand  total  for  the  epidemic 
up  to  date  is  107,250  cases  and  69,988  deaths,  tlic  mortality  beinj^ 
65.25  per  cent. 

The  following  table  shows  in  summary  form  the  progress  ot  the 
epidemic: 


Manila. 

Provinces. 

Total. 

Cases. 

Deaths. 

Mortal- 
ity. 

Cases. 

Deaths. 

Mortal- 
ity. 

Cases. 

Deaths. 

Mortal- 
ity. 

March  20  to  31,  in- 
clusive   

April 

102 
495 
529 

582 

1,3.S5 

097 

296 

88 

95 
480 
330 
442 
976 
525 
232 

66 

Per  cent. 
93,13 
96.  96 
62.  38 
75.94 
70.48 
76. 32 
78.37 
75.00 

12 

1,842 
2,668 
5,284 
7,737 
11,214 
43, 188 
31, 231 

10 
1,344 
1, 765 
4,131 
5, 826 
8,064 
27, 285 
18,412 

Per  cent. 
83.33 
72. 96 
68.73 
78.16 
75,30 
71.91 
63.17 
58. 95 

114 
2,337 
3,097 
6,806 
9,122 
11,911 
43,484 
31, 319 

106 
1,824 
2,095 
4,573* 

6,802 

8, 689 

27,617 

18,478 

Per  cent. 
92. 10 

78.04 

May 

67.64 

77.95 

July 

74.56 

V2.10 

63. 28 

58.99 

Total 

4,174 

3,146 

75.  34 

103, 076 

66, 837 

64.84 

107,250 

69, 983 

65.25 

DEATH    OF   DR.    MEACHAM. 

On  April  14  the  board  of  health  suffered  a  very  serious  loss  in  the 
death  of  Dr.  Franklin  A.  Meacham,  chief  health  inspector,  who  had 
borne  the  brunt  of  the  tight  against  bubonic  plague,  and  from  the 
beginning  of  the  cholera  epidemic  had  displayed  tireless  energy  in  his 
efforts  to  combat  the  new  enemy.  Although  suffering^  from  a  high 
fever,  he  had  for  several  days  continued  to  expose  himself  to  the 
intense  heat  of  the  sun  by  day  and  to  work  in  his  office  until  late  at 
night,  keeping  his  colleagues  in  ignorance  as  to  his  true  condition. 
He  gave  up  only  when  unable  to  rise  from  his  bed,  and  died  three  days 
later  of  heart  failure,  which  was  the  result  of  utter  exhaustion  from 
long-continued  overwork.  Dr.  Meacham  was  an  able  administrator, 
and  was  endowed  with  the  faculty,  as  valuable  as  it  is  unusual,  of  dis- 
charging disagreeable  duties  in  such  a  way  as  to  win  not  only  the 
resjiect,  but  the  regard  of  those  most  injuriously  affected.  He  sac- 
rificed his  life  in  the  discharge  of  his  duty,  and  his  death  was  an 
irrepaiable  loss. 

DEATH   OF   MR.    J.    L.    MUDGE. 

Six  days  later  the  board  suffered  another  disaster  in  the  death  of 
Mr.  J.  L.  Mudge,  the  efficient  city  superintendent  of  streets,  parks, 
bridges,  docks,  and  wharves,  who  had  rendered  invaluable  aid  in  clos- 
ing the  wells,  in  cleaning  up  those  regions  where  cholera  was  most 
prevalent,  and  in  the  establishment  of  detention  camps  and  cholera 
hospitals.  He  had  been  warned  in  writing  by  his  physician  that  his 
life  was  in  danger,  and  had  been  ordered  to  go  to  the  hospital,  but  had 
refused  to  give  up  his  work  at  this  critical  time.  The  strain  was  too 
much  for  him,  and  on  April  20  he  passed  quickly  away  from  heart 
disease. 

SPECIAL  MENTION   OF  THE   SERVICES   OF   OTHER   HEALTH   OFFICERS. 

Before  closing  my  discussion  of  the  cholera  epidemic  I  wish  especially 
to  call  attention  to  and  commend  the  following  gentlemen:  Dr.  Charles 
F.  DeMey,  for  stamping  out  cholera  in  the  provincial  towns  of  Maca- 


OF    THE    PHILirriNE    ISLANDS,    1900-1903.  335 

bebe,  Hagonoy,  and  Bacolor,  and  for  his  efficient  services  in  one  of  the 
worst  districts  in  the  city  of  Manila;  Dr.  Frank  W.  Dudley,  for  his 
efficient  work  while  in  charge  of  the  San  Lazaro  detention  camp  and 
in  fighting  cholera  at  Orani  and  in  the  northern  coast  provinces  of 
Luzon;  Dr.  Edward  A.  Southall,  for  his  fine  work,  first,  in  his  district 
in  the  city  of  Manila,  and,  second,  while  in  charge  of  the  Santiago 
Cholera  Hospital,  where  he  broke  down  physically  as  a  result  of  the 
severe  and  long-continued  strain;  Drs.  F.  J.  Combe,  George  A.  Zeller, 
Isaac  W.  Brewer,  and  Henry  E.  Winslow,  for  their  valuable  and  most 
efiicient  services  in  the  city  of  Manila.  1  have  previously  made  special 
mention  of  the  work  of  Drs.  Thomas  R.  Marshall,  J.  W.  Jobling,  and 
T.  K.  Hunt. 

One  of  the  most  serious  difliculties  encountered,  both  in  Manila  and 
in  the  provinces,  has  been  the  securing  of  efficient  inspectors.  In  too 
many  cases  the  Filipino  inspector  does  not  himself  appreciate  the 
importance  of  the  measures  which  it  is  his  duty  to  enforce.  He  is 
unable  to  understand  that  these  measures,  to  be  made  effective,  must 
be  enforced  upon  the  rich  as  well  as  the  poor,  and  the  strong  as  well 
as  the  weak.  In  order  to  get  satisfactory  results  from  Filipino  inspect- 
ors it  has  usually  proved  necessary  to  have  them  closely  supervised  by 
Americans.  The  cholera  epidemic  extended  over  the  period  of  the 
long  annual  school  vacation  and  necessitated  the  closing  of  the  schools 
in  many  municipalities  at  times  when  they  would,  under  normal  con- 
ditions, have  been  in  session.  As  a  rule  the  teachers  remained  at  their 
posts  through  the  worst  of  the  epidemic,  and  many  of  them  rendered 
invaluable  assistance  to  insular  and  provincial  health  officers  by  their 
wise,  courageous,  and  energetic  work  in  the  municipalities.  ^  They 
aroused  municipal  officers  to  the  imperative  necessity  of  improving  the 
sanitary  condition  of  their  municipalities  before  the  scourge  was  upon 
them,  and  when  it  came  voluntarily  took  up  the  disagreeable  and  dan- 
gerous task  of  searching  out  the  cholera  victims,  quarantining  the 
living,  nursing  the  sick,  and  supervising  the  burial  of  the  dead.  I 
have  seen  them  at  their  work  in  the  provinces  of  Bataan,  Pampanga, 
Tarlac,  Pangasinan,  and  Union,  and  found  them  doing  their  duty 
effectively  and  unassumingly.  Their  services  were  invaluable,  both 
from  the  direct  results  which  they  accomplished  and  from  the  far- 
reaching  effect  of  the  good  example  which  they  set.  Mr.  William  H. 
Badger,  of  Malasiqui,  Pangasinan,  Mr.  Robert  R.  Jamison,  of  Balanga, 
Bataan,  Mr.  Herbert  Lucker,  of  San  Miguel,  Ilocos  Norte,  and  Mr.  R. 
Zurastein,  of  Nagcarlang,  Laguna,  paid  for  their  devotion  to  duty  with 
their  lives. 

The  insular  board  of  health  and  the  insular  government  are  greatly 
indel)ted  to  Dr.  S.  Kitasato,  director  of  the  Imperial  Institute  for 
Infectious  Diseases  at  Tokio,  Japan,  for  the  large  amount  of  useful 
information  which  he  has  furnished  with  reference  to  means  of  com- 
bating bubonic  plague;  for  the  courteous  treatment  and  assistance 
accorded  by  him  to  the  director  of  the  Serum  Institute  and  the  super- 
intendent of  Government  laboratories  while  in  Japan;  and,  in  general, 
for  his  interest  and  hearty  cooperation  in  the  work  of  the  insular 
board  of  health,  the  Scrum  Institute,  and  the  bureau  of  Government 
laboratories. 

For  further  details  of  the  work  of  the  board  of  health  for  the  Philip- 
pine Islands,  reference  is  made  to  the  report  of  Colonel  Maus,  former 
commissioner  of  public  health,  which  is  appended  hereto  and  marked 


33(J  REPORTS    OK    TIIK    (UVIL    (iOVKRNMKNT 

"Appendix  A."  In  justice  to  Colonel  Maus  it  should  be  stated  that 
owini;^  to  the  prcs.sure  of  work  incident  to  the  cholera  epidemic,  and 
to  tlie  fact  that  he  sailed  for  the  United  States  almost  immediately 
after  his  detail  as  commissioner  of  public  health  ceased,  he  did  not 
have  time  to  prepare  a  proper  report.  The  material  which  he  j?ot 
totjether  has  necessaril}'  been  revised  by  others,  and  the  report,  as 
fimilly  submitted,  convevs  an  imperfect  idea  of  the  work  of  the  board 
fronrSeptember  1,  190i;  to  July  31,  1902. 

The  report  of  Dr.  Frank  S.  Bourns,  covering  the  period  from 
Auo-ust  1  to  August  31,  1902,  during-  which  time  he  served  as  com- 
mis'sioner  of  public  health,  which  is  appended  hereto  and  marked 
"Appendix  B,"  is  quite  complete.  Attention  is  particularly  invited 
to  the  cholera  statistics  therein  contained.  It  is  hoped  that  at  some 
future  time,  when  the  cholera  epidemic  is  over,  a  full  report  upon  it 
may  be  published. 

The  work  of  Dr.  Chas.  F.  DeMey,  in  suppressing  cholera  in  the  prov- 
inces, was  so  very  successful  that  I  deem  it  desirable  to  publish  extracts 
from  his  report,  which  are  appended  hereto  and  marked  "Appendix  C." 

THE   QUARANTINE   SERVICE. 

Under  the  efficient  management  of  Dr.  J.  C.  Perry,  passed  assistant 
surgeon,  U.  S.  Marine-Hospital  Service,  chief  quarantine  officer  for 
the  Philippine  Islands,  the  most  modern  and  best  equipped  quarantine 
station  in  the  Orient  has  been  constructed  at  Mariveles  Harbor,  at  the 
month  of  Manila  Bay.  Ships  of  the  largest  size  can  come  directly 
alongside  the  wharf,  which  is  400  feet  long  and  45  feet  wide.  The 
plant  has  sufficient  capacity  to  allow  the  disinfecting  of  150  passengers 
and  their  baggage  every  hour.  The  station  is  amply  equipped  for  the 
detention  of  suspects,  t;hree  barracks  so  arranged  as  to  provide  for  six 
segregation  groups  being  available  for  this  purpose.  Eighty  cabin 
and  a  thousand  steerage  passengers  can  be  cared  for  in  these  barracks 
at  one  time. 

An  effective  quarantine  service  is  of  the  greatest  importance  to  these 
islands,  which  are  constantly  menaced  by  the  danger  of  infection  from 
the  breeding  grounds  of  disease  afforded  ])y  the  large  neighboring 
centers  of  population  in  China.  The  presence  of  cholera  and  bubonic 
plague  upon  the  Asiatic  coast  and  in  this  archipelago  has  greatly 
increased  the  always  onerous  duties  of  the  quarantine  officers  at 
Manila,  which  have  been  faithfully  and  efficiently  performed.  The 
boarding  officer  at  Manila  has  been  on  duty  continuously  every  day 
from  6  a.  m.  to  6  p.  m.,  and  the  officer  in  charge  of  the  station  at 
Mariveles  has  often  been  on  duty  from  5  a.  m.  to  11  p.  m.  The  cler- 
ical force  has  also  been  overworked. 

During  the  fiscal  year  ending  June  30,  1902,  the  effects  of  33,387 
passengers  returning  to  the  United  States,  including  110,317  pieces  of 
large  baggage,  have  been  disinfected  at  the  Manila  and  Mariveles  sta- 
tions; 12,158  persons  have  been  detained  for  a  period  of  five  or  more 
days,  and  382  vessels  have  been  disinfected. 

Officers  of  the  Marine-Hospital  Service  are  stationed  at  Cebu  and 
lloilo,  and  the  system  of  inspection  at  these  ports  is  similar  to  that  at 
Manila. 

The  quarantine  work  at  Zamboanga  and  Jolo,  where  comparatively 
few  foreign  vessels  enter,  has  been  performed  by  surgeons  of  the 
United  States  Army. 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  337 

Aparri  has  recently  been  made  a  port  of  entry,  and  on  account  of  its 
proximity  to  Hongkong  and  Amoy  a  quarantine  officer  should  be 
detailed  lor  duty  there. 

Floating  disinfecting  plants  for  Cebu  and  Iloilo  have  been  equipped 
during  the  year,  at  a  total  cost  of  ^40,000. 

Every  effort  was  made  by  the  quarantine  officers  at  Manila  to  pre- 
vent the  introduction  of  cholera  from  Canton  and  Hongkong  after  it 
was  reported  there.  It  seems  certain  that  it  was  not  brought  in  by 
passengers,  nor  were  vegetables  which  could  have  brought  it  allowed 
to  be  landed.  After  the  order  forbidding  the  importation  of  fresh 
vegetables  had  been  issued,  a  number  of  unsuccessful  attempts  to  evade 
it  were  made.  The  temptation  to  smuggle  vegetables  into  Manila  was 
strong  on  account  of  the  high  price  which  they  brought  at  this  time, 
and  it  is  not  improbable  that  other  efforts  to  evade  the  quarantine 
regulations  in  this  respect  may  have  been  successful.  It  is  known 
that  condemned  vegetables  were  thrown  into  the  bay  in  defiance  of  the 
orders  of  the  chief  quarantine  officer,  and  that  they  were  washed  up 
on  the  beach  at  the  Farola  district  and  eaten  by  the  inhabitants.  I 
deem  this  to  be  the  most  probable  explanation  of  the  introduction  of 
cholera. 

For  a  fuller  description  of  the  Mariveles  quarantine  station  and  fur- 
ther details  of  the  work  of  the  quarantine  officers  in  the  Philippines 
during  the  past  year,  reference  is  made  to  the  report  of  the  chief 
quarantine  officer  for  the  fiscal  year  ending  June  30,  1902,  and  his 
monthly  reports  of  July  and  August  of  the  same  year,  which  are 
appended  hereto  and  marked  "Appendices  D,  E,  and  F,"  respectively. 

CIVLL   HOSPITAL. 

The  importance  of  furnishing  adequate,  medical  attendance  for  civil 
officers,  employees,  and  members  of  their  families  was  realized  at  an 
early  date  by  the  Commission,  and  it  was  deemed  advisable  to  employ 
regularly  an  attending  physician  and  surgeon  and  an  assistant  to  care 
for  them.  Much  difficulty  was  experienced  in  giving  proper  attention 
to  persons  seriously  ill  at  their  homes.  Trained  nurses  could  not  be 
had  at  prices  within  the  means  of  emploj^ees  drawing  small  or  moder- 
ate salaries,  if,  indeed,  they  could  be  had  at  all.  Equal  difficulty  was 
experienced  in  providing  suitable  food  for  those  who  required  special 
diet,  while  the  character  of  many  of  the  private  houses  was  such  that 
surgical  operations  performed  there  would  necessarily  be  attended  with 
grave  danger  of  infection.  Under  these  circumstances  the  establish- 
ment of  a  hospital  for  the  proper  treatment  of  civil  officers  and 
employees  became  imperative. 

The  overcrowding  of  the  city  made  it  most  difficult  to  secure  a  suit- 
able building,  and  dependence  was  temporarily  had  upon  the  small 
Women's  Hospital,  founded  by  Mrs.  Whitelaw  Roid,  but  the  number 
of  beds  available  at  that  institution  was  far  from  sufficient  to  meet  our 
needs,  while  the  charges  were  so  high  as  to  be  prohibitive  for  many  of 
our  employees. 

The  building  which  was  finally  secured  by  the  civil  government  had 
been  used  as  a  barrack  and  was  in  bad  condition,  but  it  was  thoroughly 
cleaned  and  renovated,  and  a  well-equipped  modern  hospital  of  80  beds 
has  been  established  there. 

Shortly  after  the  outbreak  of  cholera  a  building  adjacent  to  the  main 


88S  REPORTS    OF    THE    CIVIL    GOVERNMENT 

hospital  was  secured,  and  hiiH  since  been  utilized  as  an  isolation  ward 
for  persons  showing  s3aiiptoins  of,  or  suffering  fi'om,  contagious  dis- 
eases. Fortunately  no  contagious  diseases  developed  at  the  hospital 
prior  to  the  renting  of  this  building.  Since  it  has  been  secured  there 
have  been  cases  of  measles,  smallpox,  and  cholera  among  the  patients. 

The  civil  hospital  has  an  attending  physician  and  surgeon,  an  assist- 
ant attending  physician  and  surgeon,  a  house  physician,  and  a  staff^  of 
most  efficient  nurses  and  hospital  stewards.  It  is  open  to  all  civil 
officers,  employees,  and  members  of  their  families,  whether  resident 
in  Manila  or  m  the  provinces.  Patients  who  desire  treatment  in 
private  rooms  are  charged  $2.50  per  day,  while  those  who  receive 
treatment  in  the  wards  are  charged  $1  per  day.  These  charges  cover 
board,  medical  attendance,  and  nursing.  Persons  whose  annual  salary 
is  less  than  $480  are  entitled  to  free  treatment.  The  institution  is  thus 
made  available  for  all  servants  of  the  government. 

Emergency  cases  of  whatever  sort  are  received  at  the  hospital  and 
given  free  treatment  until  their  removal  can  be  safely  effected.  When 
the  number  of  empty  beds  exceeds  five,  civilians  other  than  officers  or 
employees  of  the  government  may  be  received  upon  the  payment  of 
prescribed  fees  and  may  employ  their  own  physicians,  but  if  they 
desire  treatment  by  the  attending  physician  and  surgeon  must  compen- 
sate him  for  his  services. 

From  its  inception  the  civil  hospital  has  been  of  great  use.  Admis- 
sion of  patients  began  on  October  12,  1901,  since  which  date  there 
have  been  admitted  1,428  patients,  of  whom  1,138  were  Americans  or 
Europeans  and  290  were  Filipinos.  Since  the  appointment  of  the 
attending  physician  and  surgeon  in  August  there  have  been  treated  as 
"sick  in  quarters"  civil  officers,  employees,  and  members  of  their  fam- 
ilies to  the  number  of  2,410.  The  total  number  of  patients  treated 
during  this  period  in  and  out  of  the  hospital  has  been  3,838.  There 
have  been  but  13  deaths,  a  record  which  is  most  creditable  to  every- 
one connected  with  the  institution.  The  attending  x)hysician  and  sur- 
geon reports  that  112  cases  of  dysentery,  36  of  which  were  amoebic, 
have  been  treated,  and  that  only  one  has  resulted  fatally  during  the 
time  they  were  under  treatment. 

The  Government  is  obliged  to  pay  a  very  high  rent  for  the  buildings 
occupied,  which  at  the  best  are  1)ut  indifferently  adapted  to  hospital 
purposes  and  are  situated  in  the  immediate  vicinity  of  low  ground 
which  can  not  be  drained.  A  modern  building  on  high  ground  is 
greatly  needed,  and  should  be  provided  as  soon  as  funds  are  available 
to  meet  the  cost  of  its  erection. 

For  further  information  in  regard  to  the  civil  hospital,  reference 
is  made  to  the  report  of  the  attending  physician  and  surgeon,  which  is 
appended  hereto  and  marked  "Appendix  G." 

CIVIL   SANITARIUM   AT   BAGUIO,  BENGUET. 

During  the  past  year  it  has  been  possible  to  conduct  some  practical 
experiments  as  to  the  effect  of  the  Benguet  climate  upon  sick  or  debili- 
tated persons.  The  opportunity  presented  itself  to  acquire  a  con- 
siderable tract  of  land  with  two  houses  upon  it,  owned  by  Mr.  Otto 
Scheerer.  The  position  of  this  land  with  reference  to  the  probable 
future  site  of  government  buildings  at  Baguio  was  such  as  to  make  it 
seem  desirable  that  the  government  should  purchase  it  before  further 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  339 

improvements  were  made  upon  it.  One  of  the  houses  was  assigned  to 
the  governor  of  the  province  as  his  official  residence.  The  other,  con- 
taining a  dining  room,  a  kitchen,  and  tliree  bedrooms,  with  a  total 
capacity  of  eight  beds,  was  taken  for  a  hospital.  With  considerable 
ditiiculty  the  necessary  furniture  and  hospital  supplies  were  sent  up 
over  the  Naguilian  trail,  and  the  institution  was  opened  with  a  per- 
sonnel consisting  of  an  acting  superintendent,  a  nurse,  a  hospital 
steward,  and  the  necessary  servants.     Later  another  nurse  was  added. 

Plans  were  prepared  for  a  new  building  to  accommodate  60  beds, 
and  to  be  constructed  in  such  a  way  that  the  old  building  would  form 
a  part  of  it.  The  construction  of  six  cottages  to  be  occupied  by  the 
families  of  civil  officers  and  employees  in  need  of  recuperation  was 
also  provided  for.  Work  upon  the  projected  improvements  was 
begun  immediately.  Progress  has  necessarily  been  slow,  as  lumber 
could  be  had  only  by  felling  pine  trees  and  sawing  them  up  by  hand, 
while  it  was  necessary  to  take  other  supplies  in  over  the  Naguilian 
trail. 

Very  sick  persons  could  not  have  endured  the  long,  rough  trip  over 
the  trail,  but  it  has  been  possible  to  send  a  limited  number  of  malaria 
patients  and  persons  convalescing  from  dysentery  and  other  wasting 
diseases.  Forty-three  persons  have  thus  far  been  admitted  to  the 
sanitarium.  A  few  of  these  were  in  good  health  and  were  members 
of  the  families  of  the  real  patients.  Approximately  four-tifths  of 
those  admitted  sought  relief  from  general  debility  induced  by  the 
tropical  climate  or  by  wasting  diseases,  and  in  nearly  every  instance 
they  reacted  promptly  to  the  bracing  air  and  rapidly  improved.  We 
now  know  positivel}^  v/hat  we  had  every  theoretical  reason  to  believe 
would  prove  true:  that  convalescents  gain  rapidly  in  weight,  strength, 
and  color  at  Baguio,  and  are  soon  restored  to  vigorous  health.  In 
some  instances  slight  discomfort  is  felt  during  the  first  few  days  owing 
to  the  change  in  altitude,  but  this  soon  passes  away. 

The  first  estimate  of  the  time  required  to  complete  the  cottages  and 
the  addition  to  the  sanitarium  building  proved  inaccurate.  Owing  to 
strikes  among  the  workmen,  cholera,  bad  transportation,  the  extraor- 
dinary rainfall  during  the  month  of  August  (54  inches),  and  scarcity 
of  labor,  progress  was  much  slower  than  had  been  anticipated.  The 
force  of  nurses  and  hospital  attendants,  based  on  this  estimate,  proved 
unnecessarily  large,  and  it  became  evident  that  if  patients,  even  when 
convalescent,  were  to  be  sent  to  Baguio  there  must  be  a  physician  and 
surgeon  there  to  attend  them.  Act  No.  429  was  accordingly  adopted, 
reducing  the  original  force  to  1  nurse,  1  hospital  steward,  1  cook,  and 
2  native  servants,  and  providing  for  the  appointment  of  an  attending 
physician  and  surgeon. 

Many  of  the  persons  who  have  been  at  Baguio  are  anxious  to 
secure  building  lots  there  in  order  that  they  may  erect  cottages  and 
send  their  families  to  Benguet  during  the  hot  season.  The  establish- 
ment of  homes  where  the  families  of  civil  officers  and  employees  can 
at  any  time  and  at  small  expense  get  the  beneficial  effects  of  a  bracing 
climate  will  greatly  add  to  the  stability  of  the  civil  service,  and  T  urge 
the  surveying  of  a  town  site  on  government  land  and  the  sale  of  build- 
ing lots  in  the  near  future,  in  order  that  it  may  be  possible  for  those 
who  desire  to  do  so  to  build  at  Baguio.  When  this  can  bo  done  many 
persons  who  now  hesitate  to  bring  their  families  to  the  Philippines 
will  feel  perfectly  safe  in  sending  for  them. 


340 


RErORTR    OK    THE    OIVTT.    (JOVKRNMENT 


For  further  details  in  regfard  to  the  work  of  the  civil  sanitarium, 
reference  is  made  to  the  report  of  the  attending  physician  and  sur- 
geon, wliich  is  appended  hereto  and  marked  "Appendix  H." 

A  year's  mcteoroloj^ical  observations  have  furnished  the  following 
data  with  reference  to  the  climate  at  liai^'uio:  February,  with  a  mean 
temperature  of  02. 1°  F.,  is  the  coldest  month.  The  temperature  rises 
rapidly  in  INIarch,  reaching  its  maxinuun  for  the  year  in  April,  which 
has  a  mean  of  70.5°.  A  second  minimum  occurs  in  August,  which 
has  a  mean  of  64.6°.  The  temperature  again  rises  slightly  in  Octo- 
ber and  November,  falling  from  that  time  until  February.  It  is 
always  from  112  to  16  degi'ees  cooler  at  Baguio  than  at  Manila,  as  is 
shown  in  the  following  table: 

Table  of  mean  temperatures  at  Manila  and  Bagvio. 


January. 

Feb- 
ruary. 

March. 

April. 

May. 

June. 

77 
63.6 

77.7 
62.1 

80.4 
66.9 

82.9 
70.5 

83.3 
68.3 

82 

67.2 

Difference  

13.5 

15.6 

13.5 

12.4 

15.0 

14.8 

July. 

August. 

Septem- 
ber. 

October. 

Novem- 
ber. 

Decem- 
ber. 

Manila 

80.8 
66.5 

80.8 
64.6 

80.4 
67 

80.8 
67.6 

79 
66 

77.4 

Baguio 

01.3 

14.3 

16.2 

13.4 

13.2 

13 

13  1 

The  maximum  temperature  for  the  year,  82.8°,  occurred  on  April 
19.  This  is  slightly  higher  than  the  maximum  temperature  with 
which  Baguio  has  been  credited.  The  minimum  for  the  year,  42.1°, 
was  recorded  February  18. 

The  relative  humidity  was  slightly  greater  at  Baguio  than  at  Manila, 
except  during  the  months  of  October  and  November,  when  it  was 
less.  By  months  it  was  as  follows:  January,  76;  February,  79; 
March,  76;  April,  74;  May,  86;  June,  90;  July,  89;  August,  93; 
September,  90;  October,  83;  November,  82;  December,  84. 

Except  during  the  months  of  July,  August,  and  September,  the 
mornings  were  almost  uniformly  free  from  fog.  It  is  an  interesting 
fact  that  for  every  month  of  the  year  there  is  less  cloudiness  at  Baguio 
than  at  Manila.  The  rainfall  by  months  was  as  follows:  January,  0.06 
inch;  February,  0.57;  March,  1.46;  April,  0.32;  May,  4.02;  June, 
12.56;  July,  15.43;  August,  37.03;  September,  11.90;  October,  4.95; 
November,  2.52;  December,  5.47;  total,  96.28.  It  will  be  noted  that 
January,  Februar}^,  March,  and  April  are  very  dry,  the  greatest  dry- 
ness occurring  at  the  time  of  greatest  heat,  in  April.  June,  July, 
August,  and  September  are  wet,  and  moderate  rains  occur  during 
October,  November,  December,  and  May. 

These  facts  fully  confirm  the  information  previously  secured  by  the 
Commission  with  reference  to  the  climate  of  Baguio. 


THE  PROPOSED  LEPER  COLONT. 


There  are  three  leper  hospitals  in  the  Philippines,  situated  at  Manila, 
Paiestina,  and  Cebu,  respectively.     During  the  past  ycai  a  beginning 


OF    THE    PHILIPPINE    ISLANDS,   1900-1003.  341 

has  been  made  toward  taking  a  leper  census  of  the  islands.  This  census 
is  already  quite  complete  for  many  of  the  provinces,  and  its  results 
lead  to  the  conclusion  that  the  estimate  of  those  persons  who  have 
heretofore  expressed  the  belief  that  there  were  30,000  lepers  in  these 
islands  is  wide  of  the  mark.  It  is  believed  that  the  total  number  will 
not  exceed  10,000,  and  it  may  fall  considerably  below  this  figure. 

The  desirability  of  establishing  a  colony  where  persons  in  the  early 
stages  of  leprosy  can  have  their  homes,  cultivate  the  soil,  and  in  general 
lead  a  free  out-of-door  life,  instead  of  being  practically  imprisoned  and 
compelled  to  pass  their  days  in  company  with  fellow-unfortunates  in 
the  last  stages  of  this  horrible  disease,  has  long  been  appreciated  by 
both  military  and  civil  authorities.  Efforts  were  made  by  the  military 
government  to  find  an  island  suitable  for  the  establishment  of  a  leper 
colony,  and  a  military  board  reported  favorably  on  the  island  of  Caga- 
yan  de  Jolo,  after  somewhat  cursorily  examining  it.  As  satisfactory 
information  was  not  given  as  to  the  supply  of  drinking  water  on  this 
island,  and  as  the  accuracy  of  the  board's  report  that  there  were  but 
200  or  300  inhabitants  had  "been  seriously  questioned,  a  committee  con- 
sisting of  the  commissioner  of  public  health,  the  sanitary  engineer,  and 
the  secretary  of  the  interior  was  appointed  to  reexamine  the  island, 
and  if  it  did  not  prove  satisfactory  to  search  for  a  more  favorable  one. 

This  committee  reported  adversely  on  the  island  of  Cagayan  de  Jolo, 
on  account  of  the  entire  lack  of  a  favorably  situated  supply  of  drink- 
ing water,  the  absence  of  any  port,  and  the  presence  in  the  island  of 
some  3,000  Moros,  whose  removal  would  have  been  both  difficult  and 
expensive,  and  recommended  the  island  of  Culion,  in  the  Calamianes 
group,  on  account  of  its  healthful  climate,  rich  soil,  extensive  cattle 
ranges,  abundant  water  supply,  good  harbors,  and  small  population. 
The  present  inhabitants  are  so  few  and  have  so  little  property  that 
their  removal,  if  deemed  necessary,  can  be  effected  with  little  difficulty 
and  at  small  expense. 

For  further  information  as  to  the  islands  of  Cagayan  de  Jolo  and 
Culion,  reference  is  made  to  the  report  of  this  committee,  which  is 
annexed  hereto  and  marked  "Appendix  I." 

An  appropriation  of  |)50,000  was  included  in  act  No.  389  for  the 
purpose  of  erecting  a  warehouse  on  Halsey  Bay,  building  a  road  to 
the  proposed  site  of  the  colony,  and  erecting  superintendent's  house, 
hospital,  and  100  separate  dwellings  for  lepers,  the  hospital  and  dwell- 
ings to  be  of  bamboo  and  nipa  palm,  which  the  island  of  Culion  pro- 
duces in  abundance.  Unfortunately  the  cholera  epidemic  prevented 
the  prosecution  of  this  work,  and  the  appropriation  lapsed  at  the  end 
of  the  fiscal  year.  A  new  appropriation  was  made  in  October,  and  it 
is  hoped  that  the  colony  may  be  established  and  the  inmates  of  the 
San  Lazaro,  Palestina,  and  Cebu  lazarettos  transferred  to  it  during 
the  coming  dry  season. 

THE  FORESTRY  BUREAU. 

The  work  of  the  forestry  bureau  has  progressed  without  interrup- 
tion during  the  past  year.  The  chief  of  the  bureau,  Capt.  George  P. 
Ahern,  Ninth  U.  S.  Infantry,  was  absent  on  leave  in  the  United  States 
from  May  18  until  December  1,  1901.  During  this  period  the  affairs 
of  the  bureau  were  ably  directed  by  its  assistant  chief,  Mr.  Albert  E. 
McCabe,  who  has  recently  severed  his  connection  with  it,  greatly  to 
my  regret,  in  order  to  engage  in  the  practice  of  law.     Mr.  McCabe 


84'2  R?:r()HT^;  of  tiik  civil  government 

had  a  o^ood  looal  trainino',  conil>ined  with  executive  al)ility,  thoroui^h 
familiarity  with  (>xtiMisive  himhorino-  operations  as  carried  on  in  the 
United  States,  and  with  tlio  methods  in  voij;ue  in  these  islands,  and  his 
place  will  be  ditlicult  to  till. 

The  visit  of  the  chief  of  the  bureau  to  the  United  States  resulted  in 
securino-  the  services  of  a  numl)er  of  valuable  men,  and  since  their 
arrival  extensive  field  operations  have  been  undertaken  in  order  to 
ascertain  the  character  and  amount  of  timber  in  the  provinces  of  Ba- 
tjian,  Ta3^abas,  and  Ambos  Camarines,  and  in  the  island  of  Mindoro. 

The  method  followed  in  estimating  timber  is  to  select  and  measure 
"  average  acres."  A  detailed  study  of  each  such  acre  is  then  made,  the 
stand  and  varieties  of  timber,  their  peculiarities  of  growth,  the  char- 
acter of  the  soil,  rock  formations,  etc. ,  being  considered.  Valuation  sur- 
veys have  already  been  made  for  600  such  acres  in  Bataan  Province. 

The  surve3^s  thus  far  completed  show  an  average  stand  per  acre  of 
7,000  cubic  feet  of  marketable  timber  (over  20  inches  in  diameter),  and 
the  statement  that  there  is  an  average  stand  of  3,600  cubic  feet  of  such 
timber  per  acre  of  the  20,000,000  acres  of  virgin  forest  estimated  to 
remain  in  this  archipelago  would  probably  be  conservative. 

A  well  equipped  timber-testing  laboratory  has  been  established  at 
Manila  and  important  practical  experiments  for  the  purpose  of  ascer- 
taing  the  qualities  of  the  different  Philippine  woods  are  now  in  prog- 
ress. No  systematic  series  of  properly  conducted  tests  have  heretofore 
been  made,  even  upon  those  of  our  woods  which  are  best  known,  and 
the  practical  importance  of  this  work  is  very  great,  as  it  will  dou])tless 
result  in  bringing  into  commercial  use  many  varieties  of  wood  which 
are  not  marketable  to-day  because  their  properties  are  unknown. 

The  timber  cut  and  marketed  in  these  islands  during  the  past 
year  has  been  entirely  insufficient  to  meet  the  local  demand.  It 
has  been  necessary  to  import  millions  of  feet  of  American  pine  and 
redwood  and  of  timber  from  Borneo  and  Australia.  Between  May  4 
and  August  12,  1902,  the  price  per  cubic  foot  of  ipil  increased  from 
$0.95  to  |2  United  States  currency;  that  of  molave  from  $1.10  to 
^1.80,  and  that  of  tindalo  from  $0.95  to  $2.  It  is  often  impossible  to 
purchase  our  best  hard  woods  at  any  price,  and  any  surplus  in  the 
near  future  will  be  promptly  absorbed  by  the  China  market.  The 
lack  of  suitable  means  for  transporting  logs  is  the  main  cause  of  the 
existing  shortage  of  lumber.  The  carabao,  which  is  the  only  draft 
animal  in  the  islands  capable  of  hauling  logs,  is  unsatisfactory  at  the 
best,  and  a  large  percentage  of  these  animals  have  recently  died  of 
rinderpest.  The  lumber  company  which  first  successfully  introduces 
modern  logging  methods  here  will  make  very  handsome  profits. 

INCREASE   IN   WORKING   FORCE. 

The  working  force  of  the  forestry  bureau  has  been  materially 
increased  during  the  year,  and  divisions  of  inspection,  of  forest  man- 
agement, and  of  botany  have  been  created.  The  efficiency  of  the 
w^ork  of  the  division  of  inspection  is  shown  by  the  increasing  revenues 
derived  from  the  dues  collected  on  forest  products. 

BOTANICAL  COLLECTIONS. 

Extensive  botanical  collections  have  been  made  during  the  past 
year  which  should  afford  material  for  the  identification  of  a  large  num- 


OF    THE    PHILIPPINE    ISLANDS,    1900-1003.  343 

ber  of  our  more  important  tree  species,  and  a  botanist  has  been  sent 
with  them  to  Buitenzorg,  Java,  in  order  that  he  may  make  use  of  the 
famous  botanical  gardens  and  the  tine  herbarium  and  library  there  in 
identification.  Much  difficulty  in  classification,  and  in  the  collection 
of  government  charges  on  lumber,  is  at  present  occasioned  by  the  fact 
that  the  exact  identity  of  many  of  our  commoner  tree  species  is  not 
known  to  us.  It  is  hoped  that  this  state  of  afiairs  may  be  remedied 
to  a  considerable  extent  in  the  near  future. 

FORESTRY   REGULATIONS. 

The  present  forestry  regulations  have  proved  satisfactory  in  the 
main,  but  the  time  has  arrived  for  carefully  revising  them  in  the  light 
of  practical  experience  extending  over  a  period  of  more  than  two 
years.  There  has  been  some  complaint  that  the  government  charges 
on  lumber  were  too  high,  but  in  view  of  the  high  prices  which  the 
local  lumbermen  get  for  all  timber  which  they  are  able  to  put  on  the 
Manila  market,  this  complaint  seems  groundless. 

Provision  should,  however,  be  made  for  the  issuing  of  licenses  under 
special  contract,  covering  periods  sufficiently  extended  to  justify  com- 
panies in  installing  plants  large  enough  to  carry  on  lumbering  opera- 
tions over  considerable  tracts,  under  the  supervision  of  the  forestry 
bureau.  One  of  the  difficulties  under  which  we  labor  at  present  is 
that  the  large  and  old  trees,  which  are  capable  of  furnishing  the  finest 
lumber,  can  be  felled  only  with  great  difficulty  with  the  crude  appli- 
ances now  available,  and  when  once  felled  can  not  be  handled,  as  cara- 
baos,  even  in  those  provinces  where  a  considerable  number  of  them 
are  still  available,  can  not  haul  the  larger  logs.  The  result  is  that  these 
trees  are  allowed  to  stand  until  they  die.  Their  removal  will  necessi- 
tate the  construction  of  tramways  or  the  use  of  a  cable  system  of  log- 
ging, which  will  take  comparatively  large  capital.  It  is  thought  by 
the  chief  of  the  forestry  bureau  that  a  period  of  at  least  ten  years 
should  be  granted  by  contract  license  for  this  kind  of  work,  and  that 
such  licenses,  covering  tracts  of  forest  specifically  indicated  by  the 
forestry  bureau,  should  be  granted  to  the  highest  bidders.  The  for- 
estry bureau  would  furnish  working  plans  of  such  tracts,  showing  the 
variety  and  amount  of  timber  which  could  be  cut,  the  length  of  the 
haul,  market  price  of  the  better-known  varieties,  and  cost  of  transpor- 
tation, in  order  that  intelligent  bids  might  be  made.  Under  theregu- 
lations  proposed  by  the  chief  of  the  forestry  bureau,  the  local  residents 
in  districts  covered  by  special  contracts  would  be  given  every  facility 
to  secure  such  lumber  as  they  might  require  for  their  personal  use, 
and  the  contract  would  cover  only  timber  cut  for  the  market.  The 
necessity  of  supervision  over  the  cutting  of  timber  is  demonstrated  by 
the  fact  that  under  the  old  haphazard  policy  some  islands  and  many 
provinces  have  been  practically  denuded  of  merchantable  timber. 

During  the  past  year  no  lumber  company  has  cut  as  much  as_  100,000 
cubic  feet.  Under  the  contract  license  system,  if  adopted,  it  is  hoped 
that  a  larger  amount  of  timber  will  be  cut.  It  will  take  a  number  of 
well-equipped  companies  many  years  to  cut  a  small  part  of  the  over- 
mature timber  which  the  forestry  bureau  is  now  ready  to  mark  for 
immediate  removal. 

PHILIPPINE   SAWMILLS. 

There  are  14  sawmills  in  the  Philippine  Islands  using  steam  or  water 
power,  8  of  which  are  in  Manila  and  6  in  the  provinces.     An  extremely 


344  REPORTS^    OK    TFIK    CIVIL    GOVERNMENT 

slow  feed  and  first-olass  sawyers  arc  necessary  in  workinof  up  the  hard 
woods.  The  slowest  feeds  of  some  ot  the  saws  recently  set  up  in 
Manila  proved  too  fast  and  teeth  were  stripped  from  them  in  conse- 
quence. The  INlanila  mills  have  a  total  daily  capacity  of  3,660  cubic 
feet.  There  are  in  addition  33  establishments  in  Manila  where  sawing 
is  done  b3'  hand.  These  hand  mills  employ  432  men,  using-  159  saws, 
and  have  a  daily  capacity  of  1,897  cubic  feet.  The  cost  per  cubic  foot 
of  sawing  by  hand  is  usually  not  less  than  30  cents  Mexican.  The 
lowest  price  at  which  any  steam  mill  at  Manila  is  sawing  into  boards 
an  inch  or  more  in  thickness  is  17  cents  per  cubic  foot,  and  this  price 
applies  only  to  mixed  shipments,  a  higher  price  being  charged  for 
shipments  ('()niiK)sod  exckisively  of  the  harder  woods.  The  other  mills 
charge  from  30  to  50  cents  per  cubic  foot  for  mixed  shipments. 

EXTENT  OF  FOREST  LANDS. 

The  forest  area  of  the  Philippines,  including  all  public  and  private 
woodlands,  was  estimated  by  Fernando  Castro  in  1890  to  be  48, 112, 920 
acres.  The  area  of  private  woodlands  held  under  valid  title  is  far 
below  1,000,000  acres.  Under  existing  forestry  regulations  owners  of 
private  woodlands  must  register  their  titles  in  the  forestry  bureau 
before  cutting  thereon  timber  or  firewood  for  the  market.  The  total 
area  of  private  woodlands  thus  far  registered  is  approximately  250,000 
acres.  It  will  be  readily  seen,  therefore,  that  under  existing  condi- 
tions the  timber  necessary  for  the  people  of  these  inlands  comes  almost 
exclusively  froir;  the  public  lands. 

RUBBER  AND   GUTTA-PERCHA. 

Dr.  P.  L.  Sherman,  who  was  sent  to  investigate  the  rubber  and 
gutta-percha  industries  in  the  Straits  Settlements,  Java,  and  Sumatra 
in  1901,  and  whose  report  thereon  has  already  been  made  public,  was 
upon  his  return  dispatched  to  Mindanao  and  the  Sulu  Archipelago  with 
a  view  to  investigating  as  carefully  as  possible  the  question  of  the 
existence  of  rubber  and  gutta-percha  in  the  forests  of  the  southern 
Philippines,  the  character  of  such  products  if  found,  the  practicability 
of  marketing  them,  and  the  protective  measures  necessary  to  prevent 
the  destruction  of  trees,  which  has  been  carried  on  with  such  disas- 
trous results  in  Borneo,  Java,  and  the  Straits  Settlements.  The  results 
of  his  work  are  embodied  in  an  important  communication,  which  the 
chief  of  the  forestry  bureau  has  incorporated  in  his  annual  report  (see 
Appendix  J). 

Dr.  Sherman  made  an  unsuccessful  attempt  to  reach  Sibutu,  the 
westernmost  island  of  the  Sulu  Archipelago,  but  was  informed  that 
neither  rubber  nor  gutta-percha  grew  there.  Tawi  Tawi  was  found 
to  produce  both  in  large  quantities.  He  reports  gutta-percha  plentiful 
in  certain  parts  of  Mindanao,  but  did  not  find  rubber,  although  the 
Moros  assured  him  that  it  grew  about  the  headwaters  of  the  Rio 
Grande.  Numerous  samples  of  rubber  and  gutta-percha  were  secured. 
Dischopsis  gutta,  the  tree  from  which  is  obtained  the  finest  gutta- 
percha known,  was  not  met  with,  but  other  trees  of  the  same  genus 
were  found.  The  gutta-percha  of  the  southern  Philippines  is  of  fair 
to  poor  quality,  containing  a  considerable  amount  of  dirt  and  resin, 
but  a  method  has  been  worked  out  in  the  government  chemical  labora- 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  345 

tory  for  the  extraction  from  it  of  chemically  pure  gutta,  equal  in  every 
way  to  the  ))est  gutta  heretofore  put  upon  the  market,  which,  before 
the  supply  was  exhausted,  brought  $700  (Mexican)  a  picul  in  the  Singa- 
pore market.  The  crude  gutta-percha  from  which  our  pure  gutta  is 
extracted  costs  from  $30  to  $70  (Mexican)  per  picul  in  the  Mindanao 
market.  The  purifying  process  involves  the  loss  of  about  50  per  cent 
of  the  original  mass. 

Dr.  Sherman  found  that  the  felling  and  ringing  of  gutta-percha 
trees,  which  has  wrought  such  havoc  in  other  gutta-producing  coun- 
tries, was  in  vogue  throughout  the  southern  islands  in  spite  of  forestry 
regulations  to  the  contrary.  In  TaAvi  Tawi  gutta-percha  is  extracted 
from  time  to  time  by  the  Moro  inhabitants  at  the  direction  of  the 
Sultan  of  Sulu,  who  purchases  the  product  at  his  own  price  and  then 
markets  it.  In  Mindanao,  however,  although  the  Moros  bring  the 
gutta-percha  to  the  market,  it  is  extracted  for  the  most  part  by  the 
wild  people  inhabiting  the  almost  unknown  interior  of  this  great  island. 
It  is  easy  to  adopt  regulations  prohibiting  the  destruction  of  gutta 
and  rubber  trees,  but  under  existing  circumstances  such  regulations 
can  not  be  made  effective  in  the  regions  where  these  trees  grow.  They 
are  usually  found  singly  and  at  considerable  intervals  over  enormous 
areas,  and  it  is  simply  impossible  to  watch  and  protect  the  individual 
trees,  yet  the  prevention  of  their  destruction  is  a  matter  of  the  utmost 
importance. 

In  view  of  the  experience  of  other  countries  and  the  evident  useless- 
ness  of  the  protective  methods  that  have  been  there  followed,  I  am 
inclined  to  recommend  the  establishment  of  a  government  monopoly 
in  gutta-percha.  Exportation,  except  by  the  government,  could  be 
prohibited,  and  such  prohi)jition  could  be  made  fairly  effective. 
Government  buyers  could  be  located  at  suitable  points.  The  govern- 
ment could  well  afford  to  pay  a  price  considerably  higher  than  that 
which  has  heretofore  prevailed  for  the  Philippine  product,  thereby 
avoiding  ill  feeling  on  the  part  of  the  gatherers,  and  by  limiting  the 
amount"which  it  purchased  could  greatly  retard  the  present  rapid 
destruction  of  the  trees.  The  government  buyers  would  necessarily 
come  in  close  contact  with  the  collectors,  and  something  might  eventu- 
ally be  done  in  the  way  of  introducing  proper  methods  of  extraction 
in  place  of  the  present  destructive  processes,  although  the  experience 
of  other  countries  leads  me  to  doubt  whether  much  can  be  accomplished 
along  these  lines.  At  all  events,  the  establishment  of  suitable  extrac- 
tion plants  would  make  it  possible  to  utilize  the  large  amount  of  gutta- 
percha which  is  now  left  in  the  bark  of  trees  that  have  been  felled  and 
ringed.  As  time  went  on  it  might  become  feasible  to  grant  the  privi- 
lege of  extracting  and  marketing  gutta  from  the  trees  in  tixed  areas, 
under  suitable  regulations,  to  private  individuals. 

Dichopsis  gutta  should  be  brought  in  from  Borneo  for  planting,  and 
adequate  provision  should,  be  made  to  grow  government  gutta-percha 
forests,  conveniently  situated  and  capable  of  thorough  protection, 
before  the  native  trees  are  destroyed. 

I  am  fully  convinced  that  the  only  method  of  stopping  the  destruc- 
tion of  gutta  trees  which  can  be  made  immediately  effective  is  the  pro- 
hibition of  exportation,  except  by  the  government,  and  the  limitation  of 
the  amount  of  the  product  acquired  by  the  government  for  this  pur- 
pose. Legislation  on  this  general  subject  will  be  recommended  to  the 
Commission  in  the  near  future,  and  prompt  action  should  be  taken. 


340  rp:ports  ok  tiik  civil  cjovkknmknt 

At  the  present  rate  of  destruction  there  will  be  no  gutta-percha  trees 
stand iiig  four  years  hence. 

It  is  dillioult  to  obtain  really  reliable  information  as  to  the  present 
exports  of  yutta-pcrcha  from  the  Pliilippines.  Singapore  is  the  prin- 
cipal and  almost  exclusive  Eastern  market  for  it.  During-  the  calendar 
3^ear  1901  the  Sulu  Archipelago  was  credited  with  1,966.5  piculs  and 
the  Philippines  with  105  piculs.  The  average  import  value  of  the 
gutta-percha  received  at  Singapore  directly  from  the  Philippines  was 
onh'  $76.68  (Mexican)  per  picul,  as  compared  with  $169.91  (Mexican) 
for  the  product  received  from  other  sources,  but  it  is  known  that  large 
quantities  of  gutta-percha  not  credited  to  these  islands,  but  actually 
shipped  from  our  southern  ports,  are  credited  to  Borneo. 

QUANTITIES  OF  FOREST   PRODUCTS   TAKEN   FROM   PUBLIC   LANDS   DURING 
THE   FISCAL   YEAR   ENDING   JUNE   30,  1902. 

There  have  been  taken  from  the  public  lands  of  the  Philippines  dur- 
ing the  fiscal  vear  ending  June  30, 1902,  3,637,392  cubic  feet  of  timber, 
3,808,870  cubic  feet  of  firewood,  247,947  cubic  feet  of  charcoal,  20,685 
pounds  of  rattan,  2,256,458  pounds  of  dyewoods,  312,154  pounds  of 
tan  ])ark,  1,082,235  pounds  of  gum  mastic,  282,996  pounds  of  rubber 
(of  superior  qualit}?^),  373,331  pounds  of  gutta-percha  (of  low  grade), 
9,181  gallons  of  vegetable  oils,  113,906  pounds  of  pitch,  and  20,685 
pounds  of  cinnamon. 

The  total  revenue  derived  from  these  products  was  $348,073.08 
Mexican.  Government  charges  on  timber  during  this  period  have 
averaged  a  little  more  than  6  cents  (Mexican)  per  cubic  foot,  which  has 
been  between  5  and  10  per  cent  of  the  market  price  of  the  timber  at 
Manila. 

Government  dues  on  forest  products  are  collected  by  provincial 
treasurers,  or,  in  the  provinces  where  civil  government  has  not  been 
established,  by  internal-revenue  ofiicers,  and  covered  into  the  insular 
treasury.  The  cost  of  maintaining  the  forestry  bureau  for  each  quar- 
ter is  deducted  from  the  revenues  so  received,  and  the  balance  remain- 
ing is  divided  between  the  provincial  and  municipal  governments  in 
the  provinces  from  which  the  products  originally  came,  one-half  of  the 
amount  remaining  after  the  pro  rata  deduction  for  the  expenses  of  the 
forestry  bureau  going  to  each  provincial  government  and  the  remain- 
ing half  being  distributed  p^mong  the  several  municipalities  in  propor- 
tion to  the  amount  of  the  original  collections  on  the  products  coming 
from  each  of  them,  the  close  relationship  between  the  construction  of 
roads  and  the  practicability  of  the  removal  of  lumber  from  the  forests 
making  it  seem  to  the  Commission  desirable  that  a  considerable  part 
of  the  funds  derived  from  taxes  on  forest  products  should  be  spent  in 
the  regions  from  which  such  products  are  derived.  Prior  to  July  1, 
1902,  all  revenue  from  forest  products  was  returned  to  the  provinces 
and  municipalities,  and  the  entire  expense  of  maintaining  the  forestry 
bureau  was  borne  by  the  insular  government. 

For  further  details  relative  to  the  work  of  the  forestry  bureau 
reference  is  made  to  the  report  of  the  chief  of  the  bureau,  which  is 
appended  hereto  and  marked  Appendix  J. 

MINING   BUREAU. 

The  mining  bureau  still  remains  without  satisfactory  quarters,  and 
there  seems  little  probability  that  this  difficulty  can  be  remedied  except 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  847 

by  building.  It  is  hoped  that,  after  the  completion  of  the  main  build- 
ing for  the  bureau  of  government  laboratories,  wings  may  be  added 
which  will  accommodate  the  mining  bureau,  forestry  bureau,  bureau 
of  public  lands,  and  agricultural  bureau. 

The  mining  bureau  has  been  obliged  to  move  during  the  present  year 
from  the  cuartel  de  ingenieros  to  the  old  mint  building,  where  it  is  now 
temporarily  housed. 

The  work  of  the  bureau  has  progressed  very  satisfactorily  during 
the  past  year.  A  number  of  important  reports  have  been  prepared 
by  its  chief,  among  which  may  be  mentioned  a  report  on  the  Sanger, 
Vera  &  Co.  claims  and  record,  a  report  on  the  Gil  Brothers'  coal  min- 
ing claims  on  the  island  of  Batan,  a  report  on  the  mining  claims  of 
Antonio  Fuset,  a  report  on  the  Spitz  coal  mines  and  claims  in  Cebu, 
and  a  report  on  the  iron  mines  of  Angat,  in  Bulacan,  including  the 
Constancia,  Santa  Lutgarda,  and  Hison  mines. 

The  important  work  of  completing  a  chronological  index  to  the 
records,  archives,  books,  and  papers  of  the  mining  bureau  has  been 
practically  finished.  The  index  books  show  in  chronological  order 
every  document  and  entry,  with  a  brief  abstract  giving  the  nature  of 
the  paper  referred  to,  the  province  to  which  it  relates,  the  class  and 
kind  of  material,  the  name  of  the  person  or  persons  in  interest,  and  a 
reference  to  the  portfolio  or  book  in  which  the  original  document  can 
be  found.  The  great  mass  of  records  in  the  mining  bureau  has  thus 
been  made  readily  accessible,  and  I  take  pleasure  in  expressing  my 
satisfaction  at  the  accurate  and  painstaking  manner  in  which  this  diffi- 
cult and  tedious  work  has  been  performed. 

MINERALOGICAL   AND    GEOLOGICAL   SURVEYS. 

The  restoration  of  order  throughout  the  archipelago  has  made  it 
possible  to  send  out  field  parties,  and  the  mining  bureau  has  inaugu- 
rated a  proposed  series  of  minei'alogical  and  geological  surveys  by 
making  a  detailed  examination  of  the  iron-mining  region  in  the  vicin- 
ity of  the  municipality  of  Angat,  in  the  province  of  Bulacan.  A  party 
of  seven  men  remained  in  the  field  for  forty-five  days,  at  a  total  cost  to 
the  insular  government  of  ^527.55  United  States  currency.  A  large 
amount  of  information  was  secured  and  embodied  in  a  special  report 
entitled  "Report  on  a  geological  reconnaissance  of  the  iron  region  of 
Angat,  Bulacan."  This  report  will  be  issued  as  a  bulletin  of  the  bureau, 
and  will  form  one  of  a  series  of  bulletins  for  the  use  of  miners  and 
prospectors  and  for  the  information  of  the  general  public.  The  first 
of  this  series,  entitled  "Platinum  and  associated  rare  metals  in  placer 
formations,"  has  already  been  published  and  widely  distributed. 

An  abstract  of  the  Spanish  mining  code  for  these  islands,  previously 
prepared  by  the  chief  of  the  mining  bureau,  has  been  carefully  revised, 
annotated,  and  published.  It  should  be  of  great  use  in  the  settlement 
of  legal  questions  which  may  arise  with  reference  to  Spanish  mining 
grants. 

Considerable  additions  have  been  made  to  the  museum  of  the  bureau 
during  the  past  year. 

In  view  of  the  enactment  by  Congress  of  a  mining  law  for  this  archi- 
pelago, which  places  the  administrative  work  with  reference  to  mining 
claims  hereafter  located  in  the  bureau  of  public  lands,  it  would  seem 
advisable  to  also  transfer  to  that  bureau  the  administrative  work  aris- 


34S  REPORTS    OK    TllK    (UVII.    (JOVKKNMENT 

ino-  in  connection  with  the  old  Spanish  mininjr  grants,  which  under  the 
Siwnish  law  was  performed  by  the  mining  bureau.  Legislation  to 
this  end  will  be  recoujuiended  in  due  time. 

LEGISLATION   RECOMMENDED. 

While  there  has  been  some  complaint  among  miners  as  a  result  of 
the  provision  of  the  recent  act  of  Congress  that  "the  holder  of  a 
mineral  claim  shall  be  entitled  to  all  minerals  which  may  lie  within  his 
claim,  but  he  shall  not  be  entitled  to  mine  outside  the  boundary  lines 
of  his  claim  continued  vertically  downward,"  the  only  provision  in 
that  act  with  reference  to  mineral  lands  which  has  provoked  serious 
criticism  is  the  one  contained  in  section  33,  which  prohibits  any  per- 
son from  holding  "in  his,  its,  or  their  own  name  or  in  the  name  of 
any  other  person,  corporation,  or  association  more  than  one  mineral 
claim  on  the  same  vein  or  lode." 

It  should  be  remembered  that  there  is  no  mining  industry  in  the 
Philippines  to-day.  Although  many  of  the  islands  undoubtedly  have 
rich  and  extensive  mineral  deposits,  the  obstacles  imposed  upon  the 
prospector  by  the  heat  of  the  lowlands  and  by  the  dense  tropical 
vegetation,  which  usually  covers  and  to  a  large  extent  conceals  soil 
and  rock  formations,  as  well  as  by  the  existing  lack  of  transportation 
facilities,  are  verv  great.  There  have  been  found  in  Benguet  and 
Lepanto  small  bodies  of  extremely  rich  ore,  but  the  veins  are  narrow 
and  crooked  owing  to  volcanic  action,  which  has  played  such  an 
important  part  in  these  islands  in  the  recent  past,  and  to  earthquakes, 
which  are  still  very  frequent,  and  "faults"  are  extremely  common. 
It  is  not  to  these  small  bodies  of  rich  ore,  therefore,  that  the  miner 
must  look  for  his  returns,  but  to  large  masses  of  low-grade  free- 
milling  ores.  Considerable  m.asses  of  such  ores  have  been  found,  but 
they  are  for  the  most  part  far  from  the  seashore,  and  their_  successful 
development  necessitates  the  construction  of  roads  and  the  installation 
of  expensive  machinery.  The  miners  maintain,  with  apparent  reason, 
that  the  necessary  capital  can  not  be  secured  for  the  development  of 
these  deposits  if  no  person  or  association  of  persons  is  allowed  to  own 
or  have  an  interest  in  more  than  a  single  claim  on  the  sauie  vein  or 

lode. 

It  is  surely  unnecessary  to  discuss  the  advantages  which  would 
result  from  the  active  development  of  the  mineral  wealth  of  these 
islands,  and  there  would  seem  to  be  no  good  reason  why  the  miners 
here,  who  must  create  a  new  industry,  should  not  be  as  liberally 
treated  as  are  miners  in  the  United  States.  I  therefore  hope  that  the 
Commission  will  urge  upon  Congress  the  modification  or  repeal  of 
section  33  of  "An  act  temporarily  to  provide  for  the  administration  of 
the  affairs  of  civil  government  in  the  Philippine  Islands,  and  for  other 
purposes." 

For  further  information  as  to  the  work  of  the  mining  bureau,  refer- 
ence is  made  to  the  report  of  the  chief  of  the  bureau,  which  is 
appended  hereto  and  marked  "Appendix  K." 

BUREAU  OF  PATENTS,  COPYRIGHTS,  AND  TRADE-MARKS. 

The  work  of  this  bureau  has  remained  so  small  that  it  could  be 
readily  performed  by  one  clerk  who  has  acted  under  the  general 
supervision  of  the  chief  of  the  forestry  bureau.     Since  July  1,  1901, 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  349 

224  certified  copies  of  United  States  patents  and  84  certificates  of  reg- 
istration of  the  United  States  trade-marks  have  been  filed.  The 
receipts  of  the  bureau  from  fees  during  this  period  have  been  1331.15 
United  States  currency.  In  addition  to  this  the  sum  of  $259.50  Mexi- 
can currency  was  received  from  sales  of  stamped  paper  for  the  annual 
payment  of  patents  and  the  renewal  of  trade-marks  granted  by  Spain 
and  in  force  in  these  islands  on  the  date  of  American  occupation. 
There  are  about  3,000  Spanish  patents,  202  Spanish  trade-marks,  and 
152  Spanish  copyrights  on  file  in  the  bureau. 

Although  provisions  exist  at  present  for  the  protection  of  United 
States  patents  and  trade-marks  here,  there  is  no  protection  for  United 
States  copyrights,  nor  is  it  possible  for  inventors  to  protect  themselves 
by  taking  out  patents  in  these  islands.  Although  the  Filipinos  are 
apparently  not  an  inventive  people,  the  few  applications  for  patents 
and  for  copyrights  which  have  been  made  since  1899  having  come 
almost  exclusively  from  Americans  or  Europeans,  the  lack  of  a  law 
providing  for  the  registration  and  protection  of  trade-marks  has  been 
a  great  hardship.  The  American  occupation  has  led  to  the  introduc- 
tion of  many  new  articles  of  commerce  and  has  caused  a  greater 
demand  for  articles  previously  used,  but  there  is  no  protection  for 
new  trade-marks,  and  advantage  has  been  taken  of  this  fact  to  flood 
the  market  with  cheap  imitations  of  many  standard  articles.  It  is 
important  that  a  trade-mark  law  should  be  speedily  enacted. 

For  further  information  as  to  the  work  of  the  bureau  of  patents, 
copyrights,  and  trade-marks,  and  for  a  brief  resume  of  orders,  circu- 
lars, and  letters  relative  to  patents,  copyrights,  and  trade-marks  in  the 
Philippine  Islands,  reference  is  made  to  the  report  of  Capt.  George 
P.  Ahern,  Ninth  United  States  Infantry,  in  charge  of  the  bureau, 
which  is  appended  hereto  and  marked  "Appendix  L." 

BUREAU  OF  GOVERNMENT  LABORATORIES. 

The  reasons  which  led  the  Commission  to  establish  a  bureau  of  gov- 
ernment laboratories  were  enumerated  in  the  last  annual  report  of 
that  body.  The  policy  outlined  in  that  report  has  been  strictly  adhered 
to  during  the  past  year,  and  the  not  altogether  unnatural  desire  on 
the  part  of  heads  of  bureaus  to  establish  separate  laboratories  for 
carrying  on  their  special  lines  of  work  has  been  steadily  resisted.  As 
a  result  a  broad  foundation  has  been  laid  for  future  scientific  work  in 
connection  with  the  safeguarding  of  the  public  health  and  the  develop- 
ment of  the  material  resources  of  this  archipelago,  where  such  work, 
if  properly  carried  on,  will  certainly  lead  to  results  even  more  impor- 
tant and  far-reaching  than  those  which  have  been  obtained  under 
somewhat  similar  conditions  in  Java.  Except  for  some^  investigation 
in  systematic  botany,  and  the  meteorological,  astronomical,  and  mag- 
netic work  of  the  Manila  Observatory,  no  scientific  research  worthy 
of  the  name  was  carried  on  under  Spanish  rule,  and  we  found  our- 
selves practically  without  equipment  and  entirely  without  laboratory 
facilities  for  such  work. 

Dr.  Paul  C.  Freer,  whose  familiarity  with  the  laboratories  of  Europe 
and  America  fitted  him  to  superintend  the  establishment  and  equip- 
ment of  this  important  bureau,  was  appointed  its  chief  and  accepted 
the  position  on  June  21,  1901.  Under  instructions  from  the  Commis- 
sion he  visited  many  laboratories  in  the  United  States  for  the  purpose 

ii;jl8l— 0-i 23 


350  REPORTS    OK    TIIK    OIVIL    OOVERNMENT 

of  seeldnj?  available  candidates  for  future  positions  in  the  Philippine 
service  aiid  of  obtaining  information  likely  to  be  useful  in  planning  a 
suitable  building  and  equipping  it  with  the  necessary  library  and 
apparatus,     lie  reached  Manila  on  September  25. 

There  had  existed  prior  to  his  arrival  a  "municipal  laboratory  of 
Manila,"  established  under  the  military  government,  where  biological 
and  chemical  Avork  had  been  carried  on  for  the  board  of  health  of 
Manila.  The  property  belonging  to  this  laboratory  had  passed  to  the 
possession  of  the  civil  government,  but  it  had  been  necessary  to  vacate 
the  oki  laboratory  building  and  store  the  apparatus  in  the  basement  of 
the  civil  hospital.  The  urgent  necessity  of  laboratory  facilities  in  con- 
nection with  the  work  of  the  civil  hospital  and  the  insular  board  of 
health  made  it  imperatively  necessary  that  this  state  of  affairs  be  reme- 
died at  once.  A  small  building  immediately  in  the  rear  of  the  civil 
hospital  was  finally  secured,  and,  although  it  was  not  suited  for  labora- 
tory purposes,  such  apparatus  as  was  available  was  installed  there  and 
chemical  and  biological  work  begun.  It  has  been  necessary  to  make 
two  additions  to  this  building  in  order  to  get  the  laboratory  force  and 
the  gradually  increasing  equipment  under  cover;  but,  in  view  of  the 
fact  that  the  construction  of  an  adequate  and  suitably  equipped  build- 
ing for  the  bureau  has  been  contemplated  from  the  outset  and  has  now 
actually  begun,  no  expense  has  been  incurred  in  connection  with  the 
present  quarters  which  could  be  avoided. 

From  the  day  the  laboratory  was  opened  the  insular  board  of  health, 
the  bureau  of  customs  and  immigration,  the  civil  hospital,  and  the 
courts  of  the  islands  availed  themselves  of  the  opportunity  afforded  by 
its  inadequate  facilities,  and  the  volume  of  work  has  steadily  increased 
until  it  has  reached  a  limit  which  can  hardly  be  exceeded  prior  to 
occupancy  of  the  new  building. 

Richard  P.  Strong,  Ph.  B.,  M.  D.,  first  lieutenant  and  assistant  sur- 
geon, U.  S.  Army,  who  had  carried  on  important  investigations  with 
reference  to  tropical  diseases  during  his  army  service  in  the  Philippine 
Islands,  and  who  was  at  the  time  absent  on  leave  in  the  United  States, 
was  appointed  director  of  the  biological  laboratory  and  arrived  in 
Manila  on  January  1,  1902.  Most  of  the  employees  of  the  Manila 
municipal  laboratory  were  taken  over  at  the  outset,  and  others  have 
been  added  from  time  to  time.  The  working  force  of  the  bureau  at 
present  consists  of  1  chemist  and  investigator,  1  chemist,  1  physio- 
logical chemist,  1  analytical  chemist,  2  assistant  chemists,  1  assistant 
biologist,  1  assistant  bacteriologist,  and  a  photographer,  with  the  nec- 
essary clerical  assistants  and  laboratory  servants. 

A  large  amount  of  the  time  of  the  superintendent  of  government 
laboratories  has  been  devoted  to  completing  plans  for  a  new  building, 
in  cooperation  with  the  chief  of  the  bureau  of  architecture,  and  to 
listing  and  securing  prices  on  the  books  and  apparatus  necessary  to 
properly  equip  it. 

This  building,  upon  which  work  has  already  begun,  will  provide 
adequate  space  for  the  chemical  and  biological  laboratories,  the  serum 
institute,  and  for  a  library  of  30,000  volumes.  It  is  intended  pri- 
marily as  an  institution  for  practical  investigation  rather  than  for 
instruction,  and  large  rooms  are  therefore  unnecessary.  Each  class  of 
work  will  have  separate  space  allotted  to  it  so  that  it  will  not  interfere 
with  other  work  which  is  being  carried  on  simultaneously.  The 
chemical  laboratory  will  afford  space  and  thoroughly  adequate  facilities 


OF    THE    PHILIPPINP]    ISLANDS,    1900-1903.  351 

for  the  analysis  of  minerals,  mineral  products  and  rocks,  water,  soils, 
food  products,  paints,  oils,  beverages,  and  other  materials,  and  for 
investigations  with  reference  to  the  natural  resources  of  the  islands, 
the  means  of  improving  present  products,  and  the  possibility  of  devel- 
oping new  industries.  Rooms  will  be  provided  for  distillation,  for 
the  examination  of  plant  products,  and  for  work  in  pharmacology  with 
special  reference  to  the  value  of  our  numerous  medicinal  plants. 

A  part  of  the  ground  floor  of  the  chemical  laboratory  will  be  set 
aside  for  a  physical  laboratory,  which  will  be  equipped  for  gravimetric, 
volumetric,  thermometric,  and  photometric  work,  and  for  electrical 
measurements,  and  will  provide  suitable  facilities  for  the  work  of 
standardizing  weights  and  measures. 

The  biological  laboratory  will  have  suitable  space  and  proper  equip- 
ment for  the  making  of  diagnostic  analyses,  bacteriologically  and  other- 
wise, and  for  the  investigation  of  tropical  diseases  of  man  and  of  the 
plants  and  animals  useful  to  man. 

In  order  to  give  the  necessary  floor  space  for  carrying  on  these  sev- 
eral kinds  of  work,  and  for  housing  an  adequate  library,  the  building 
will  be  two  stories  high,  216  feet  long,  and  60  feet  wide.  Laboratory 
desks  will  be  provided  with  gas  and  water,  and  where  necessary  with 
steam  and  vacuum.  An  adequate  power  plant  will  furnish  vacuum, 
steam,  and  water,  and  will  supply  electricity  for  the  various  motors, 
and  for  lighting  the  building.  Boilers  and  engines  will  be  housed  in 
an  addition  115  feet  long  and  68  feet  wide,  in  the  rear  of  the  laboratory 
structure  proper.  This  space  will  afl'ord  room  for  the  necessary 
engines  and  boilers,  and  for  additional  boilers  and  engine  space  when 
the  erection  of  other  government  buildings  makes  it  desirable  to  derive 
more  power  from  this  plant.  In  the  addition  will  also  be  established 
the  laboratory  of  the  serum  institute,  and  a  refrigerating  room  for  the 
preservation  of  serums  and  prophylactics,  and  such  other  chemicals 
and  supplies  as  must  be  kept  cold.  Animal  houses  will  be  built  in  the 
rear  of  the  laboratory  building.  The  details  of  the  building  have  been 
planned  by  the  insular  architect,  Mr.  E.  K.  Bourne,  and  will  be  found 
in  his  annual  report,  which  appears  as  an  appendix  to  the  report  of 
the  secretary  of  public  instruction. 

When  this  building  is  erected  and  equipped  the  facilities  which  it 
will  afford  for  investigation,  taken  in  conjunction  with  the  rich  mate- 
rial available,  will  certainly  serve  to  attract  scientists  to  this  interest- 
ing and  important  field.  It  is  an  encouraging  fact  that  a  number  of 
well-known  investigators  have  already  indicated  their  willingness  to 
come  to  these  islands  and  work  for  a  year  or  more,  for  their  bare 
expenses,  when  suitable  facilities  have  been  provided. 

THE   SERUM   INSTITUTE. 

A  serum  institute  under  the  insular  board  of  health  was  provided 
for  by  act  No.  389,  and  has  been  established  on  the  San  Lazaro  Hos- 
pital grounds,  where  temporary  sheds  for  vaccine  calves  and  for 
horses  and  cattle,  as  well  as  fenced  inclosures  for  isolating  animals 
which  are  under  treatment,  have  been  provided.  A  limited  amount 
of  anti plague  serum  was  manufactured  here  during  the  last  days  of 
the  plague  epidemic,  but  the  greater  part  of  the  serum  used  in  com- 
batting this  disease  was  imported  at  considerable  expense  from  Japan, 
before  the  establishment  of  the  institute.     The  imperative  necessity 


352  REPORTS    OF    TIIK    CIVIL    (H)VERNMENT 

of  manufacturing  antirinderpcstic  scrum  in  laroc  quantities,  if  the 
prostration  of  agriculture  Avhich  at  present  exists  in  tLiese  islands,  due 
to  the  loss  of  draft  animals,  is  to  be  relieved;  the  standing  necessity 
for  the  manufacture  of  vaccine  virus  in  large  quantities;  the  presence 
of  hog  cliolera  and  of  other  very  destructive  epidemic  diseases  of 
domestic  animals,  such  as  surra,  glanders,  and  hoof  and  mouth  disease, 
suflicicntl}'^  indicate  the  importance  of  the  future  work  of  the  serum 
institute,  not  only  in  manufacturing  serums  already  known,  but  in 
conducting  investigations,  in  conjunction  with  the  biological  labora- 
tor}^,  for  the  working  out  of  serum  treatments  for  combatting  diseases 
for  which  no  remedy  has  yet  been  found.  It  seems  evident  that  the 
serum  institute  should  be  incorporated  in  the  bureau  of  government 
laboratories,  and  legislation  to  this  end  is  recommended.  As  a  matter 
of  fact,  although  nominally  under  the  insular  board  of  health,  its 
operations  have  thus  far  been  actually  superintended  almost  exclu- 
sively by  the  directors  of  the  biological  and  chemical  laboratories. 

WORK  OF  THE  CHEMICAL  LABORATORY. 

In  spite  of  inadequate  facilities  the  routine  work  of  the  chemical 
laboratory  during  the  past  year  has  embraced  89  analyses  of  paints,  31 
of  liquors,  25  of  oils,  1  of  glycerin,  6  of  foods,  11  of  textile  fabrics, 
15  of  coals,  5  of  iron  ores,  3  of  other  minerals,  3  of  limestones,  8  of 
soil,  1  of  wood  extract,  1  of  stone,  319  of  urine,  11  of  carabao  and  cow 
milk,  3  involving  suspected  poisoning,  6  of  water,  1  of  coffee,  2  of 
human  milk,  1  of  salt,  2  of  gastric  juice,  1  of  contents  of  stomach,  1  of 
feces,  5  of  disinfectants,  and  15  miscellaneous,  making  a  total  of  566 
analyses.  In  addition  to  170  analyses  for  the  custom-house,  the  director 
of  the  chemical  laboratory  has  been  called  upon  to  make  8  custom- 
house decisions.  The  departments  of  the  government  interested  in  this 
work  have  been  the  bureau  of  customs  and  immigration,  mining  bureau, 
forestry  bureau,  bureau  of  architecture,  civil  hospital,  insular  board 
of  health,  courts  of  first  instance,  police  department  of  the  city  of 
Manila,  insular  purchasing  agent,  bureau  of  agriculture,  and  Bilibid 
prison.  I  believe  I  am  correct  in  saying  that  in  but  one  instance  has 
an  appeal  been  taken  from  a  custom-house  decision  based  upon  results 
obtained  in  the  laboratory,  and  a  considerable  saving  of  revenue  to  the 
government  by  proving  the  exact  nature  of  substances  which  it  was 
desired  to  pass  through  the  customs,  has  resulted.  In  the  case  of 
paints,  for  instance,  of  which  77  samples  were  examined,  55  were  zinc 
colors,  of  which  53.3  per  cent  were  found  to  contain  materials  that 
caused  a  surtax  of  50  per  cent  of  the  regular  rate  to  be  collected,  and 
78.4  per  cent  of  the  remaining  metallic  colors  examined  were  also 
found  to  be  liable  to  a  surtax  of  50  per  cent. 

The  laboratory  has  also  manufactured  upon  a  considerable  scale 
benzoyl-acetyl  peroxide,  which  has  been  used  very  successfully  in 
combatting  cholera  and  in  the  treatment  of  amebic  dysentery.  For 
further  details  as  to  the  results  of  the  use  of  this  new  antiseptic,  see  the 
report  of  the  superintendent  of  government  laboratories  (Appendix  N). 

Very  important  work  has  also  been  done  on  gutta-percha,  resulting 
in  the  discovery  of  a  simple,  comparatively  inexpensive,  and  commer- 
cially practicable  process  for  obtaining  pure  gutta  from  the  gutta- 
percha of  difi'erent  grades,  which  is  produced  in  large  quantities  in 
this  archipelago.     As  all  of  the  gutta-percha  thus  far  discovered  in 


OF   THE    PHILIPPINE    ISLANDS,   1900-1903. 


353 


the  Philippines  contains  a  sufficiently  large  percentage  of  resin  and 
other  substances  to  make  it  of  but  medium  or  poor  grade,  the  impor- 
tance of  this  discovery  will  be  readily  appreciated.  Chemical  and 
physical  tests  applied  to  the  pure  gutta  extracted  from  several  of  the 
Philippine  ^utta-perchas  show  it  to  be  quite  equal  to  the  best  Singa- 
pore gutta."^  Good  rubber  has  also  been  found,  and  it  is  yet_  to  be 
shown  whether,  with  proper  coagulating  and  drying,  it  will  not 
equal  the  best  Para  rubber. 

WORK   OF   THE   BIOLOGICAL   LABORATORY. 

During  the  brief  existence  of  the  biological  laboratory  it  has  been 
called  upon  not  only  to  do  a  very  large  amount  of  routine  diagnosis, 
but  to  carry  on  work  in  connection  with  bubonic  plague,  cholera,  rin- 
derpest, surra,  and  amebic  and  other  dysenteries,  as  well  as  a  consid- 
erable number  of  other  tropical  diseases.  The  board  of  health,  civil 
hospital,  physicians,  and  other  persons  interested  have  shown  their 
confidence  in  the  results  obtained  in  the  laboratory  by  their  constantly 
increasing  calls  for  its  services.  I  have  elsewhere  referred  to  the 
great  importance  of  the  work  done  in  examining  rats  for  bubonic 
plague,  which  I  believe  made  it  possible  to  stamp  out  that  disease 
and" avert  a  serious  epidemic,  thereby  saving  hundreds  of  thousands 
of  dollars  and  many  lives. 

Upon  the  appearance  of  Asiatic  cholera  here  the  biological  laboratory 
gave  us  a  conclusive  and  final  diagnosis  in  less  than  forty-eight  hours 
after  the  discovery  of  the  first  case,  thereby  silencing  to  a  considera- 
ble degree  the  popular  outcry  with  which  the  radical  measures  adopted 
for  the  suppression  of  this  disease  in  Manila  were  met,  and  encourag- 
ing the  health  authorities  to  persist  in  these  measures,  in  the  certainty 
that  the  logic  of  events  would  justify  their  action. 

Many  animal  maladies,  such  as  surra,  glanders,  farcy,  and  hog 
cholera  have  been  diagnosed  with  certainty  during  their  early  stages, 
so  that  the  saving  of  numerous  animals  has  been  possible.  A  new 
horse  disease  resembling  glanders  has  been  discovered.  It  can  be 
readily  and  certainly  diagnosed  with  the  microscope,  and  is  much  less 
fatal  than  glanders;  in  fact,  a  large  majority  of  the  cases  eventually 
recover.  Undoubtedly  numerous  animals  attacked  by  it  have  been 
killed  within  the  past  two  years  on  the  supposition  that  they  were  suf- 
fering from  glanders.  Needless  destruction  of  animals  which  have 
this  disease  can  hereafter  be  avoided  by  a  simple  microscopical  exami- 
nation. 

The  clinical  work  of  the  laboratory  has  included  all  ot  the  examina- 
tions necessary  for  the  Civil  Hospital,  San  Lazaro  Hospital,  Bilibid 
Prison,  and  the  various  cholera  hospitals.  The  examinations  made 
include  361  of  sputa,  173  of  urine,  253  blood  specimens  for  malaria,  74 
serum  reactions  for  typhoid  fever.  115  blood  counts,  1,142  for  gonococci, 
1,626  of  feces,  976  for  spirilla  of  Asiatic  cholera,  15  for  lymphangitis 
epizootica,  3  for  glanders,  48  for  surra,  6  for  hog  cholera,  and  650 
examinations,  each  involving  a  search  for  the  following  organisnis: 
Ameba  dysenteritc,  ameba  coli,  monads,  strongyloides  intestinalis, 
ova  of  trichocephalus  dispar,  ova  of  uncinaria  duodenale,  ova  of  ascaris 
lumbricoides,  and  of  tainia. 

Nineteen  thousand  seven  hundred  and  sixteen  doses  of  plague  serum 
were  also  prepared  at  the  biological  laboratory  prior  to  the  establish- 
ment of  the  serum  institute  and  delivered  to  the  board  of  health. 


354  REPORTS    OK    THE    OIVIL    GOVERNMENT 

Owing  to  the  quarantine  re^^ulations  and  the  restrictions  placed  by 
the  board  of  health  upon  persons  who  had  been  in  contact  with  chol- 
era suspects,  or  who  liad  been  living  in  houses  where  cases  of  supposed 
cholera  had  occurred,  it  was  most  important,  in  order  to  avoid  injus- 
tice, to  have  early  and  linal  diagnoses  made,  and  the  biological  labora- 
tory did  this  work  in  a  very  satisfactory  manner.  Autopsies  were 
performed  at  first  on  all  suspicious  cases  which  resulted  fatally.  Later, 
when  the  number  of  dead  greatly  increased,  autopsies  were  omitted  on 
cadavers  coming  from  hospitals  where  a  positive  diagnosis  during  life 
had  been  possible.  More  than  a  thousand  autopsies  were,  however, 
performed,  and  a  very  large  number  of  bacteriological  examinations 
were  made  on  material  from  living  patients.  One  thousand  one  hun- 
dred and  thirty-four  cultures  were  made  from  food  stuffs,  water, 
clothing,  etc.,  in  an  attempt  to  trace  the  process  of  cholera  infection. 
The  city  water  was  kept  under  unremitting  surveillance.  Examina- 
tions were  made  upon  flies,  which  demonstrated  the  existence  of  living 
cholera  spirilla  in  the  intestines  of  13  out  of  27  specimens  twenty- 
four  hours  after  feeding  upon  fresh  cholera  stools. 

LOCUST  FUNGUS. 

Tubes  of  a  fungus  which  produces  an  epidemic  disease  among  locusts 
were  received  from  Cape  Colony  and  from  Washington,  D.  C,  in 
December,  1901,  and  cultures  in  large  quantities  were  prepared  for 
shipment  to  all  the  provinces  of  the  archipelago,  in  many  of  which 
plagues  of  locusts  were  causing  serious  destruction.  Great  difficulty 
has  been  experienced  in  getting  the  Filipinos  carefully  to  follow  instruc- 
tions in  using  the  fungus.  In  many  cases,  either  through  neglect  or 
through  fear  that  persons  eating  the  infected  locusts  might  themselves 
become  ill,  it  has  not  been  used.  Little  by  little,  however,  the  preju- 
dice against  it  is  being  overcome,  and  in  a  number  of  instances  most 
satisfactory  results  have  been  reported.  Very  dry  weather  has  proved 
an  obstacle  to  infection.  In  one  of  the  most  stiikingly  successful  cases 
of  the  use  of  the  fungus,  eight  or  ten  locusts  were  captured,  infected, 
and  released  at  4  o'clock  in  the  afternoon  on  a  plantation  of  the  Philip- 
pine Sugar  Estate  Development  Company,  in  the  province  of  Bulacan. 
On  the  following  day  more  than  30  cavanes  (64  bushels)  of  dead  locusts 
were  found  in  the  vicinity  of  the  place  where  the  infected  locusts  were 
released,  and  the  remainder  of  the  swarm  had  disappeared. 

For  a  fuller  account  of  the  new  building  of  the  bureau  of  govern- 
ment laboratories,  the  equipment  and  library  facilities  which  it  will 
possess,  and  of  the  work  of  the  chemical  and  biological  laboratories, 
and  of  the  serum  institute,  reference  is  made  to  the  report  of  the  super- 
intendent of  government  laboratories,  which  is  appended  hereto  and 
marked  Appendix  M. 

PUBLIC  LANDS. 

Act  No.  218  of  the  Commission,  providing  for  the  establishment  of 
a  bureau  of  public  lands,  was  passed  September  2,  1901,  and  on  Sep- 
tember 4  Mr.  Will  M.  Tipton  was  appointed  chief  of  this  bureau.  In 
view  of  the  restrictions  with  reference  to  the  sale  or  lease  of  public 
lands  imposed  upon  the  Commission  by  Congressional  action,  it  was 
deemed  impracticable  to  do  more  than  attempt  to  get  together  the 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  355 

incomplete  records  with  reference  to  public  and  private  lands  which 
remained  in  the  government  archives,  and  to  systematically  examine 
and  classify  them. 

Considering  the  state  of  the  records,  good  progress  has  been  made 
in  this  work.  Eight  thousand  four  hundred  and  seventy-eight  docu- 
ments have  been  examined,  abstracted,  and  entered  upon  a  tabulated 
record.  Some  20,000  documents,  most  of  which  are  believed  to  be  of 
slight  importance,  remain  to  be  examined. 

Act  No.  218  provided  for  no  clerical  assistants  except  a  chief  clerk 
and  made  it  incumbent  upon  the  chief  of  the  bureau  to  recommend 
a  permanent  form  of  organization  and  force  of  employees  at  the 
proper  time.  Seuor  Gregorio  Basa,  a  lawyer  who  had  acquired  an 
intimate  knowledge  of  the  Spanish  land  laws  during  eighteen  years  of 
service  as  an  employee  of  the  Spanish  government,  was  appointed 
chief  clerk.  The  force  of  the  bureau  has  since  been  increased  by  the 
addition  of  one  clerk  of  class  8,  one  clerk  of  class  10,  two  clerks  of 
Class  1,  and  a  messenger. 

Since  June  2,  1902,  on  which  date  the  chief  of  the  bureau  of  public 
lands  was  authorized  by  executive  order  of  the  acting  civil  governor 
to  issue  certified  copies  of  documents  bearing  upon  land  titles,  28  cer- 
tified copies,  aggregating  43,168  words,  have  been  issued  by  him. 

Numerous  inquiries  in  regard  to  thetakingup  of  public  land  have  been 
made  by  Americans  who  signified  their  intention  of  remaining  in  the 
islands  and  devoting  themselves  to  agriculture.  Many  of  these  men, 
who  were  possessed  of  but  limited  means,  have  been  discouraged  by 
their  inability  to  secure  titles  and  have  left  the  islands,  a  fact  which  is 
greatly  to  be  regretted. 

The  chaotic  condition  of  land  titles  which  at  present  exists,  due  to 
the  wanton  destruction  of  many  important  government  records  by 
Spanish  officials  shortly  before  the  downfall  of  Spanish  sovereignty  in 
these  islands,  to  the  loss  of  important  documents  through  the  vicissi- 
tudes of  war,  to  the  mutilation  of  existing  records  caused  by  eyil- 
intentioned  persons  or  by  insect  pests,  and  to  the  rapid  deterioration 
which  documents  undergo  in  this  climate  if  left  uncared  for,  makes  it 
most  necessary  that  legislative  action  should  be  taken  in  the  near 
future  which  will  allow  of  the  establishment  and  registration  of  land 
titles.  A  bill  providing  for  the  adjudication  and  registration  of  titles 
has  been  drafted  by  the  honorable  the  secretary  of  finance  and  justice, 
and  will  soon  be  considered  by  the  Commission. 

In  view  of  the  present  state  of  titles  and  of  the  obstacles  presented 
by  natural  conditions,  the  satisfactory  surveying  of  the  public  domain 
of  these  islands  will  be  a  difficult  task.  It  is  hoped  that  an  arrangeraent 
can  be  made  with  the  Director  of  the  Geological  Survey  of  the  United 
States  by  which  a  system  of  rectangular  surveys  similar  to  that  in  the 
United  States  can  be  combined  with  the  geological  survey  of  these 
islands. 

LEGISLATION  RECOMMENDED. 

In  section  15  of  the  recent  act  of  Congress  the  government  of  the 
Philippine  Islands  is  authorized  and  empowered,  on  such  terms  as  it 
may  prescribe  by  general  legislation,  "to  provide  for  the  granting 
or  sale  and  conveyance  to  actual  occupants  and  settlers  and  other 
citizens  of  said  islands  such  parts  and  portions  of  the  public  domain, 
other  than  timber  and  mineral  lands,  of  the  United  States  in  said 


85(>  RKPOKTS    OF    THE    CIVIL    (U)VERNMENT 

islands  as  it  may  deem  wise,  not  exceeding  sixteen  hectares  to  an}?  one 
person,  and  for  the  sale  and  conveyance  of  not  more  than  one  thousand 
and  twenty-four  hectares  to  any  corporation  or  association  of  persons," 
under  certain  general  conditions  prescribed  in  this  and  the  following 
section. 

1  strongly  urge  that  the  Commission  recommend  to  Congress  that 
the  provisions  as  to  the  amount  of  land  which  may  be  sold  to  an  indi- 
vidual or  a  corporation  or  association  of  persons  be  made  much  more 
liberal. 

In  discussing  agricultural  possibilities  here  1  have  invited  attention 
to  the  favorable  opportunities  afforded  by  the  soil  and  climate  of  this 
archipelago  to  young  men  of  limited  means  desirous  of  engaging  in 
agriculture,  but  the  success  of  such  ventures  is  obviously  dependent 
upon  ability  to  secure  sufficient  land.  In  cocoanut  growing,  for 
instance,  the  trees  thrive  in  sandy  soil  along  the  sea,  barely  above  high- 
water  mark,  on  land  which,  so  far  as  we  at  present  know,  is  absolutely 
useless  for  any  other  purpose  than  cocoanut  growing,  but  not  more  than 
75  trees  can  be  advantageously  planted  to  the  acre.  If  one  were  to  take 
up  the  maximum  of  16  hectares  and  were  able  to  utilize  all  of  it  for 
planting  cocoanut  trees,  he  would  be  able  to  put  out  less  than  1,900 
trees— a  number  which  would  not  justify  him  in  engaging  in  the  cocoa- 
nut  business.  If  this  is  true  of  cocoanut  growing,  which  does  not  neces- 
sitate the  installation  of  any  machinery,  it  is  much  more  true  of  sugar 
growing.  A  40-acre  sugar  plantation  would  be  ridiculous,  and  the  same 
statement  would  hold  for  a  rice  or  abaca  plantation  of  similar  dimen- 
sions. If  the  present  limitation  upon  the  amount  of  public  land  which 
may  be  sold  to  an  individual  be  not  removed,  the  inevitable  result  will 
be  that  the  sale  of  public  lands  to  individuals  desiring  to  cultivate  upon 
a  commercial  scale  sugar,  hemp,  tobacco,  coffee,  indigo,  or  cacao  will 
be  prevented,  and  those  who  wish  to  engage  in  any  of  these  industries 
will  be  compelled  to  purchase  land  from  persons  who  secured  title 
under  Spanish  sovereignty,  with  the  result  that  there  will  be  little 
increase  in  the  acreage  which  now  is,  or  recently  has  been,  under  cul- 
tivation. 

I  see  no  good  reason  for  imposing  a  severer  restriction  upon  an  indi- 
vidual as  to  the  amount  of  land  which  he  may  purchase  and  cultivate 
than  is  imposed  upon  a  corporation. 

If  the  Filipino  is  ever  to  adopt  modern  agricultural  machinery  and 
to  employ  advanced  methods  of  cultivation,  it  will  be  only  as  the  result 
of  practical  demonstration  of  the  advantages  of  such  a  course.  Every- 
one who  knows  him  fully  realizes  that  it  is  useless  to  attempt  to  argue 
him  into  giving  up  the  methods  which  his  forefathers  have  followed 
for  generations,  but  he  is  not  slow  to  recognize  a  good  thing  if  he  can 
see  it.  The  educational  value  to  these  islands  of  large  estates  under 
high  cultivation  would  be  very  great. 

We  are  now  compelled  to  import  large  quantities  of  rice,  while  there 
are  thousands  of  acres  of  the  finest  rice  lands  along  the  line  of  our  one 
railway  which  have  never  yet  been  touched  by  the  plow;  and  if  this 
state  of  affairs  is  to  be  remedied,  these  lands  must  be  sold  or  leased  on 
long  terms  in  large  tracts. 

The  small  landowner  should  certainly  be  protected,  and  Congress  has 
done  well  to  safeguard  his  interests;  but  in  order  to  achieve  this  end 
it  is  by  no  means  necessary  to  impose  restrictions  which  can  only  result 


OF    THE    PHILirPINE    ISLANDS,    1900-1903. 

in  leaving  enormous  areas  of  rich  agricultural  Government  lands  u 
tivated  in  the  future,  as  they  are  to-day. 

These  islands  have  no  manufactures  of  great  importance,  and  if  ^^ 
bo  lance  of  trade,  which  is  to-day  heavily  against  them,  is  to  be  turned 
in  their  favor,  it  must  be  through  the  sale  of  the  products  of  their 
forests,  their  mines,  and  their  agricultural  lands.  If  these  products 
are  to  be  materially  increased  in  quantity  and  improved  in  quality,  it 
must  be  by  encouraging  the  investment  of  capital  upon  a  basis  which 
affords  reasonable  hope  of  good  returns. 

I  believe  that  the  individual  should  be  treated  as  liberally  as  the 
corporation  in  the  matter  of  the  amount  of  Government  land  which  he 
may  purchase,  and  that  the  limit  should  be  not  less  than  15,000  acres. 

If  it  is  not  deemed  advisable  for  the  Government  to  part  with  title 
to  large  tracts  of  public  lands,  the  Commission  might  be  authorized  to 
lease  such  tracts  for  periods  of  fifty  years,  and  in  that  event  the  limit 
should  be  increased  to  25,000  acres. 

For  further  information  concerning  public  lands,  reference  is  made 
to  the  first  annual  report  of  the  chief  of  the  bureau  of  public  lands, 
which  is  appended  hereto  and  marked  "Appendix  N." 

PRESENT  STATE  OF  AGRICULTURE. 

The  inhabitants  of  the  Philippines  are  essentially  an  agricultural 
people.  The  islands  produce  few  manufactures  of  importance,  and 
their  wealth  has  in  the  past  come  very  directly  from  the  products  of 
the  soil.  Agriculture  has,  nevertheless,  up  to  the  present  time  been 
carried  on  in  a  very  primitive  fashion,  with  rude  implements  and 
antiquated  machinery,  and  without  the  use  of  fertilizers  or  the  employ- 
ment of  suitable  methods  of  cultivation.  The  results  which  have  beea 
obtained  under  such  conditions  afford  proof  of  the  favorable  character 
of  the  climate  and  the  natural  richne^^..a  of  the  soil,  which  in  many 
places  seems  to  be  practically  inexhaustible,  but  rank  tropical  vege- 
tation speedily  invades  lands'  that  are  left  uncultivated,  and  the  dis- 
turbed conditions  incident  to  six  years  of  intermittent  warfare  have 
operated  disastrously  in  favoring  or  compelling  the  abandonment  of 
large  tracts  of  cultivated  land. 

One  of  the  terrible  epidemics  of  rinderpest  which  have  from  time 
to  time  invaded  the  Philippines  has  recently  swept  over  the  archipel- 
ago, and  the  statement  that  75  per  cent  of  the  horned  cattle  have  been 
destroyed  by  this  disease  and  by  war  would  probably  be  conservative. 
The  Filipino  horses  are  too  small  to  be  of  use  in  heavy  field  work, 
nevertheless  they  are  of  great  value  in  packing  or  hauling  agricultural 
products  to  market.  Glanders  has  spread  widely  among  them,  and 
within  the  past  year  surra,  a  very  fatal  disease,  has  also  made  its  appear- 
ance, and  has  caused  serious  losses  not  only  among  native  horses,  but 
among  the  American  horses  and  mules  as  well.  The  result  is  that  the 
people  in  many  provinces  are  badly  hampered  by  lack  of  draft  animals, 
and  are  obliged  to  leave  a  considerable  part  of  their  land  uncultivated. 
1  believe  that  the  problem  of  restocking  these  islands  with  draft  ani- 
mals is  one  of  the  most  serious  which  we  are  at  present  called  upon  to 
face.  Many  of  the  provincial  governments  have  expressed  a  desire  to 
use  provincial  funds  for  the  bringing  in  of  horned  cattle.  They  also 
desire  to  import  jackasses  in  the  hope  of  being  able  to  cross  them  suc- 
cessf  ullly  with  the  native  mares  and  breed  mules.     Some  importations 


858  REPORTS    OF    THE    CIVIL    GOVERNMENT 

of  horned  cattle  have  recently  been  made  by  private  individuals,  but 
practically  without  exception  the  animals  thus  brought  in  have  con- 
tracted rinderpcfcit.  The  serum  institute,  however,  is  now  manufac- 
turinrr  an  antirinderpestic  serum,  inoculation  with  which  confers  a 
higii  dej^ree  of  immunity  for  a  period  of  several  years,  and  importa- 
tions of  horned  cattle  can  be  made  with  every  reason  to  expect  success. 
Fortunately,  there  are  still  a  few  islands  which  have  not  been  visited 
by  rinderpest,  and  every  effort  will  be  made  to  protect  the  cattle  that 
are  left. 

THE  BUREAU  OF  AGRICULTURE. 

On  October  8,  1901,  act  No.  261,  providing  for  the  establishment 
of  a  bureau  of  agriculture,  was  adopted,  and  the  Secretary  of  Agri- 
culture of  the  United  States  was  requested,  through  the  Secretary  of 
War,  to  recommend  a  suitable  person  for  appointment  as  its  chief. 
Pending  the  receipt  of  his  recommendation,  a  very  limited  amount  of 
work  was  carried  on  under  my  direction.  A  considerable  number  of 
Government  farms  and  experiment  stations  were  said  to  have  been 
established  under  the  Spanish  Government,  but  little  actual  infor- 
mation was  available  as  to  the  extent  of  land  included  in  each,  the 
character  of  the  soil,  the  crops  which  could  be  raised  to  advantage, 
possibilities  as  to  water  power  and  irrigation,  the  existence  of  build- 
ings, machinery,  or  agricultural  implements  on  the  several  farms  and 
stations,  and  the  state  of  such  buildings  as  were  known  to  exist. 
Therefore  I  appointed  Mr.  Michael  R.  Healy,  who  was  recommended 
for  this  position  by  Dr.  S.  A.  Knapp,  special  commissioner  of  the 
United  States  Department  of  Agriculture,  a  special  agent  to  visit 
these  abandoned  Government  farms  and  experiment  stations  and  to 
report  fully  upon  each  of  them. 

In  general,  it  was  found  that  buildings,  where  any  had  ever  existed, 
had  been  destroyed  or  had  greatly  deteriorated,  and  that  farm  machin- 
ery, tools,  etc.,  had  been  stolen  or  scattered,  or  had  become  useless 
through  neglect.  In  some  instances  tracts  of  land  selected  by  the 
Spanish  Government  were  found  to  be  well  suited  for  the  purposes 
for  which  they  were  intended,  while  in  other  cases  they  were  so  badly 
situated  as  to  suggest  the  advisability  of  their  final  abandonment. 

At  San  Ramon,  in  the  district  of  Zamboanga,  island  of  Mindanao, 
distant  some  15  miles  from  the  town  of  Zamboanga,  the  Spanish  Gov- 
ernment maintained  a  penal  colony  where  convicts  were  employed  to 
cultivate  an  extensive  tract  of  land.  This  farm  was  occupied  by  the 
United  States  military  authorities  not  long  after  the  landing  of  Amer- 
ican troops  at  Zamboanga,  and  an  old  sawmill  situated  upon  it  was 
temporarily  repaired  and  used  for  getting  out  lumber  needed  by  the 
Army.  Something  was  also  done  toward  gathering  and  marketing 
cocoanuts  and  abaca  (manila  hemp),  which  were  growing  on  the  farm 
in  considerable  quantity.  On  September  27,  1901,  the  civil  governor 
was  informed  by  General  Davis  that  the  Army  was  about  to  abandon 
this  farm.  General  Davis  stated  that  it  could  be  leased  for  $5,000 
gold  per  year,  and  recommended  that  this  course  be  pursued,  but  it 
was  decided  by  the  Secretary  of  War,  under  the  then  existing  Con- 
gressional legislation,  that  the  Commission  was  without  authority  to 
lease  the  property. 

Mr.  George  M.  Havice,  a  gentleman  of  considerable  experience  in 
the  conducting  of  large  estates,  was  appointed  superintendent  of  the 


OF   THE    PHILIPPINE    ISLANDS,   1900-1903.  359 

farm,  and  a  suitable  appropriation  was  made  for  conducting  it.  There 
is  no  land  communication  between  San  Ramon  and  Zamboanga,  and 
the  isolated  position  of  the  farm  made  it  difficult  to  get  labor.  Plan- 
tations of  cocoanuts,  abaca,  and  cacao  had  been  left  for  years  without 
cultivation,  the  machinery  and  buildings  had  deteriorated  for  lack 
of  care,  and  conditions  in  general  were  very  discouraging.  Mr.  Havice 
has  displayed  great  energy  in  his  work,  and  present  indications  are 
that  the  San  Ramon  farm  will  soon  produce  a  considerable  revenue. 

Upon  the  recommendation  of  the  Secretary  of  Agriculture  of  the 
United  States,  Mr,  F.  Lamson-Scribner,  who  had  held  the  position  of 
chief  agrostologist  in  the  Department  of  Agriculture  at  Washington, 
way  appointed  chief  of  the  insular  bureau  of  agriculture  on  November 
29, 1901,  and  was  instructed  to  secure  agricultural  machinery,  farming 
tools,  and  seeds  of  American  vegetables  and  field  crops,  and  to  visit 
places  in  the  United  States  where  practical  information  likely  to  be  of 
value  to  him  in  his  future  work  could  be  obtained  before  sailing  for 
these  islands. 

The  United  States  Department  of  Agriculture  furnished  him  with  a 
large  and  valuable  consignment  of  seeds  for  experimentation  and  dis- 
tribution, together  with  a  fine  set  of  lantern  slides,  an  extensive  collec- 
tion of  botanical  specimens,  and  many  important  publications,  thus 
enabling  the  bureau  to  enter  the  field  well  equipped  for  work.  An 
act  organizing  the  bureau  of  agriculture  was  passed  on  April  30, 1902. 
In  addition  to  the  chief  of  the  bureau,  it  provided  for  an  expert  in 
animal  industry,  a  botanist  and  assistant  agrostologist,  a  soil  expert, 
a  tropical  agriculturist,  an  expert  in  plant  culture  and  breeding,  and 
an  expert  in  farm  machinery  and  farm  management,  and  for  the  neces- 
sary clerical  assistants.  It  also  made  the  superintendent  of  the  San 
Ramon  farm  an  employee  of  the  bureau  of  agriculture. 

On  July  14,  1902,  the  working  force  was  increased  by  the  addition 
of  an  expert  in  seed  and  plant  introduction  and  an  expert  to  conduct 
fiber  investigations. 

The  first  practical  work  of  the  bureau  was  to  get  in  touch  with  the 
more  intelligent  and  progressive  persons  interested  in  agriculture  in 
these  islands,  through  the  medium  of  circular  letters,  which  were 
addressed  to  the  provincial  governors  and  the  presidents  of  the  sev- 
eral municipalities,  asking  for  information  relative  to  the  soil  and 
agricultural  products  of  the  territory  under  their  respective  jurisdic- 
tions, and  requesting  addresses  of  persons  likely  to  be  interested  in 
the  work  of  the  bureau  and  in  the  improvement  of  agricultural  con- 
ditions in  general.  A  mailing  list  of  nearly  a  thousand  names  was 
thus  secured. 

Eighteen  thousand  two  hundred  and  fifty  packages  of  field  and 
garden  seeds,  including  131  varieties,  have  been  distributed  to  730 
individuals,  many  of  whom  have  shown  a  lively  interest  in  the  result 
of  the  experiments  which  they  are  thus  enabled  to  make.  While  it  is 
too  soon  to  make  a  full  statement  as  to  the  outcome  of  this  effort  to 
introduce  new  vegetables,  fruits,  and  farm  crops,  the  results  thus  far 
reported  are  decidedly  encouraging.  There  seems  little  doubt  that 
great  good  can  be  accomplished  by  this  means,  and  that  a  number  of 
new  and  valuable  plants  can  be  successfully  introduced.  The  better 
varieties  of  tomatoes  grow  well  throughout  the  islands.  Fairly  good 
Irish  potatoes  and  peas  have  been  grown  in  the  lowlands  near  Manila 
from  American  seed;  and  very  fine  potatoes,  celery,  and  peas  have 


300  REPORTS    OF    THE    CIVIL    GOVERNMENT 

been  raised  from  American  seed  in  Benofuot.  Beets  do  well  in  the 
lowlands,  and  radishes  are  ready  for  the  tal)lo  in  three  to  four  weeks 
after  planting-.  Improved  varieties  of  oranoc  and  lemon  brought  from 
California  are  flourishing,  both  in  the  lowlands  and  in  the  mountains 
of  Benguct,  while  pear,  peach,  apricot,  and  plum  trees  have  been  suc- 
cessfullv  introduced  in  the  latter  region. 

An  eii'ort  is  now  being  made  to  secure  seeds  of  the  economic  plants 
of  the  islands  for  experimental  cultivation  with  a  view  to  improve- 
ment. These  islands  have  heretofore  produced  no  grapes,  with  the 
exception  of  a  very  limited  quantity  grown  in  the  city  of  Cebu.  The 
agricultural  bureau  has  recently  discovered  a  new  species  of  wild 
grape  in  the  island  of  Negros,  the  improvement  of  which  by  proper 
cultivation  may  lead  to  results  of  considerable  economic  importance. 
Vanilla  is  said  to  grow  wild  on  Mount  Banajao,  in  Laguna  Province. 

The  botanist  of  the  bureau,  who  also  acts  as  botanist  for  the  forestry 
bureau,  has  already  collected  a  considerable  amount  of  valuable  botan- 
ical material,  and  has  gone  to  the  famous  botanical  gardens  at  Buiten- 
zorg,  Java,  for  the  purpose  of  identifying  it,  the  destruction  by  fire 
in  1897  of  the  large  Spanish  collections  identified  by  Vidal  and  of  the 
fine  reference  library  which  formerly  belonged  to  the  Spanish  Govern- 
ment having  rendered  it  impossible  successfully  to  carry  on  such  work 
at  Manila  at  the  present  time. 

1  desire  to  express  my  appreciation  of  the  treatment  that  has  be^n 
accorded  representatives  of  this  government  by  the  Dutch  authorities 
at  Buitenzorg,  who  not  only  extended  every  courtesy  to  Dr.  Sherman 
when  he  visited  Java  to  investigate  rubber  and  gutta-percha,  but  offered 
to  place  the  facilities  afforded  by  their  wonderful  botanical  gardens, 
their  extensive  laboratories,  fine  reference  library,  and  large  and  com- 
plete herbarium  at  the  disposal  of  any  person  whom  we  might  desire  to 
send  to  carry  on  further  work  there. 

SOIL  INVESTIGATION. 

Mr.  Clarence  W.  Dorsey,  soil  physicist  of  the  bureau,  has  been 
making  a  preliminary  survey  of  the  soils  of  the  regions  which  at  present 
produce  the  best  abaca,  and  at  the  request  of  the  governor  of  the 
province  of  Union,  in  this  island,  is  now  investigating  the  soils  of  that 
province  in  order  to  determine  whether  abaca  can  be  successfully  grown 
there.  Union  has  a  long,  narrow  strip  of  level,  fertile  land  extending 
from  1  to  5  or  6  miles  back  from  the  seashore  and  reaching  from  one 
end  of  the  province  to  the  other.  The  remainder  of  the  province  is 
occupied  by  steep  hills  and  mountains,  which  at  present  produce  only 
a  little  mountain  rice  and  a  few  sweet  potatoes.  Should  it  prove,  as 
seems  probable,  that  abaca  can  be  successfully  raised  on  the  slopes,  the 
wealth  of  the  province  will  be  greatly  increased.  Similar  work  will 
be  carried  on  in  other  provinces,  and  it  is  believed  that  the  important 
results  which  have  f  ollow^ed  soil  investigations  in  the  United  States  can 
be  equaled  or  exceeded  here. 

FIBER  INVESTIGATIONS. 

But  two  vegetable  fibers  are  at  present  exported  from  the  Philip- 
pines, namely,  abaca  and  maguey,  the  latter  in  insignificant  quantities. 
The  value  of  abaca  exports  is  62.5  per  cent  of  the  total  value  of  the 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  361 

exports  of  the  archipelago.  Fifty-two  fiber-producing  plants  are  at 
present  known  to  exist  here,  and  others  doubtless  remain  to  be  dis- 
covered. The  investigation  of  the  fiber-producing  plants,  with  a  view 
to  ascertaining  the  economic  value  of  the  several  fibers  and  the  best 
means  of  cultivating  those  plants  which  produce  fibers  of  commercial 
importance,  has  begun,  and  a  prelhninary  report  on  the  commercial 
fibers  of  the  Philippines  will  soon  be  issued  in  pamphlet  form. 

WORK   IN   BATANGAS   PROVINCE. 

Practical  work  on  a  large  scale  has  been  made  feasible  in  the  province 
of  Batangas  by  the  hearty  cooperation  of  Gen.  J.  Franklin  Bell,  who 
has  shown  the  keenest  interest  in  promoting  the  agricultural  develop- 
ment of  this  province  by  furnishing  transportation  and  directing  the 
cooperation  of  the  army  officers  of  the  several  posts  in  the  inauguration 
of  practical  experiments  in  the  use  of  American  agricultural  machinery 
and  the  growing  of  alfalfa,  teosinte,  cotton,  tobacco,  and  sugar  cane 
under  modern  methods  of  cultivation. 

Batangas  was  formerly  a  rich  agricultural  province,  sugar  and  coffee 
being  its  principal  products.  Some  ten  j^ears  ago  its  valuable  and 
extensive  coffee  plantations  were  practically  annihilated  by  a  borer. 
Most  of  the  carabaos  have  died  of  rinderpest,  and  from  1896  until 
April  of  the  present  year  the  province  has  been  the  theater  of  active 
military  operations  which  have  kept  the  people  from  properly  culti- 
vating the  soil,  with  the  result  that  little  is  grown  there  at  the  present 
time  except  mountain  rice,  and  the  once  important  agricultural  inter- 
ests are  practically  prostrated.  The  people  are  relatively  intelligent 
and  progressive,  and  it  is  believed  will  profit  by  the  practical  experi- 
ments now  in  progress,  which  are  conducted  in  such  away  as  to  attract 
the  attention  of  those  who  are  most  vitally  interested  in  their  results. 
There  are  a  considerable  number  of  people  in  this  province  who  have 
the  necessary  means  for  the  purchase  of  modern  agricultural  machin- 
ery and  good  draft  animals,  and  it  is  hoped  that  by  the  introduction  of 
new  crops  and  the  demonstration  of  the  value  of  improved  methods  of 
cultivation  this  province  may  in  the  not  distant  future  be  made  more 
prosperous  than  it  ever  has  been. 

farmers'  bulletins. 

With  a  view  to  improving  the  methods  of  cultivation  now  in  vogue, 
the  publication  of  a  series  of  farmers'  bulletins  is  projected.  A  bulle- 
tin on  the  cultivation  of  sugar  cane  has  already  been  issued  and  has 
been  appreciatively  received  and  widely  read.  A  second  bulletin  on 
the  cultivation  of  cacao,  which  has  been  raised  thus  far  in  insignificant 
quantities,  but  which  might  form  an  important  export,  is  in  prepara- 
tion and  will  be  issued  in  the  near  future. 

experimental  work  at  baguio,  benguet. 

It  may  well  be  doubted  if  any  region  in  the  world  offers  such  unex- 
celled advantages  for  experimental  work  with  plants  as  are  presented 
by  the  climate  and  soil  in  the  vicinity  of  Baguio.  The  climate  admits 
of  the  growing  of  a  great  variety  of  tropical,  sul>tropical,  and  temper- 
ate-zone plants.  In  the  gardens  of  the  governor  one  may  see  coffee 
bushes  bearing  heavily,  fine  tea  plants,  hot-house  gardenias,  caladiums, 


3G2  REPORTS    OF    THE    CIVIL    CiOVERNMENT 

dractenas,  franoipani,  and  manj^o  trees,  all  characteristic  of  the  Trop- 
ics; alsophila  tree  ferns,  scarlet  hibiscus,  passion  fruit,  begonias, 
hj^drangeas,  and  nian}^  other  plants  of  the  subtropical  regions;  and 
side  by  side  with  these  potatoes,  tomatoes,  peas,  beans,  celery,  and 
other  garden  vegetables  and  monthly  roses,  all  strictly  temperate-zone 
products,  while  the  neighboring  hillsides  are  covered  with  pine  trees 
and  produce  raspberries  and  huckleberries  in  considerable  abundance. 
With  reference  to  the  red  volcanic  soil  which  covers  laroe. areas  in 
Benguet  and  which  has  been  considered  practically  wortliless,  Mr. 
Thomas  Hanley,  the  expert  of  the  Agricultural  Bureau  in  plant  cul- 
ture, says: 

The  soil  of  the  slopes  and  hills  is  composed  of  a  red  volcanic  clay  loam  of  great 
depth.  *  *  *  There  was  something  familiar  to  me  about  this  red  soil,  as  well  as 
the  surroundinsj  hills  and  valleys.  They  suggested  the  soil  and  scenery  of  a  place 
cajlled  Mount  Gambler,  in  South  Australia,  seen  by  the  writer  many  years  ago.  The 
soil  there,  as  here,  is  of  volcanic  origin,  and  in  the  early  days  of  occupation  in  that 
colony  the  fertility  of  the  red  clay  soil  escaped  notice.  Someone,  however,  started 
cultivation  and  the  result  was  surprising.  Like  Benguet,  the  climate  there  is  quite 
different  from  that  of  the  lowland  country.  Potatoes  can  not  be  grown  in  the  hot 
plains  of  Australia.  Thev  were  tried  here  (INIount  Gambler)  and  the  yield  was 
enormous.  It  was  the  same  with  onions.  In  a  short  time  there  was  a  rush  for 
land,  and  what  could  be  obtained  for  $10  an  acre  previously  quickly  brought  $150. 
Mount  Gambler,  in  a  couple  of  years,  became  famous  for  its  wonderful  crops,  and 
since  than  has  shipped  its  products  to  all  parts  of  the  country.  The  only  difference 
I  can  see  in  the  soil  here  (at  Benguet)  is  that  it  is  more  tenacious  in  character,  but 
not  sufficiently  so  to  prevent  ready  drainage. 

Experimental  work  was  begun  at  Baguio  by  Mr.  Hanley  at  the 
most  unfavorable  time,  namely,  just  at  the  beginning  of  the  rainy 
season.  Cabbage,  tomatoes,  onions,  leeks,  carrots,  turnips,  parsnips, 
beans,  peas,  cucumbers,  marrow,  squashes,  pumpkins,  salsify,  Irish 
potatoes,  white  oats,  wheat,  millet,  and  alfalfa  were  sown.  All  of 
them  germinated  quickly,  and  there  was  nothing  to  show  that  the  soil 
was  deficient  in  plant  food.  The  experiments  at  Baguio  will  be  con- 
tinued through  the  coming  year. 

AGRICULTURAL  OPPORTUNITIES  IN   THE  PHILIPPINES. 

It  is  hardly  necessary  here  to  discuss  the  agricultural  opportunities 
offered  in  these  islands  to  corporations  or  individuals  possessing  large 
capital  and  able  to  cultivate  upon  an  extensive  scale  such  crops  as 
sugar,  hemp,  and  tobacco.  But  a  small  part  of  the  soil  capable  of 
producing  these  crops  to  advantage  is  at  present  under  cultivation. 
The  methods  of  extracting  sugar  now  used  leave  approximately  50 
per  cent  of  the  sugar  in  the  pressed  cane  when  it  is  thrown  on  the 
dump  pile.  Hemp  is  cultivated  in  a  haphazard  way,  where  it  is  not 
allowed  to  grow  practically  wild,  and  the  fiber  is  extracted  by  hand. 
No  systematic  and  sustained  effort  has  ever  been  made  to  improve  the 
quality  of  Philippine  tobacco,  and  the  methods  used  in  curing  it  are 
very  primitive.  If  rich  returns  have  been  realized  from  the  growing 
of  these  commodities  in  the  past  upon  a  comparatively  limited  scale, 
the  results  of  extensive  cultivation  with  modern  methods  and  machin- 
ery are  too  evident  to  require  discussion. 

I  desire  to  call  especial  attention  to  the  opportunties  here  afforded 
young  men  of  comparatively  limited  means  to  engage  profitably  in 
agriculture. 

There  are  very  large  areas  of  government  lands  admirably  adapted 
to  the  cultivation  of  cocoanuts.     Cocoanut  trees  come  to  bearing  in 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  363 

from  five  to  seven  years,  reaching  the  bearing  stage  more  slowly  as 
the  altitude  increases.  The  trees  can  be  grown  readily  and  with 
comparatively  little  danger  of  loss.  Under  existing  conditions,  the 
minimum  annual  profit  from  a  fairly  good  bearing  tree  is  $1 
Mexican,  and  frequently  two  or  three  times  this  amount  is  realized. 
The  ground  under  the  trees  is  now  either  allowed  to  grow  up  with 
brush  or  is  kept  clear  by  hand.  The  growth  of  underbrush  injures 
the  soil  and  leads  to  the  loss  of  falling  nuts,  while  clearing  by  hand  is 
quite  expensive.  The  use  of  mowing  machines  would  result  in  a  great 
saving  in  the  cost  of  labor  necessary  to  keep  the  ground  clear  and 
gather  the  nuts.  Other  crops,  such  as  Indian  corn  and  alfalfa,  can  be 
grown  between  the  rows  of  cocoanut  trees  while  the  latter  are  matur- 
ing, and  used  to  fatten  hogs,  which  always  bring  a  good  price  in  the 
Philippine  market.  The  demand  for  copra  in  these  islands  is  greatly 
in  excess  of  the  supply  and  is  steadily  increasing,  while  cocoanut  oil 
now  sells  readily  in  Manila  at  11.25  Mexican  per  gallon. 

The  lands  along  the  coast  of  Mindanao  and  Paragua  are  particularly 
favorable  to  cocoanut  growing,  and  in  the  latter  island  trees  are  said 
to  come  to  bearing  in  four  years. 

Mr.  Lyon,  the  expert  tropical  agriculturist  of  the  agricultural 
bureau,  informs  me  that  in  no  other  country  has  he  seen  climate  and 
soil  so  favorable  to  cacao  growing  as  in  Mindanao.  The  cacao  now 
produced  in  that  island  is  of  superior  quality  and  is  nearly  all  bought 
up  for  shipment  to  Spain,  where  it  brings  an  especially  high  price. 
There  are  numerous  other  regions  in  the  islands  where  cacao  can  be 
raised  to  great  advantage,  but  it  is  hardly  too  much  to  say  that  there 
is  not  to-day  a  cacao  plantation  in  the  archipelago,  the  Filipinos  having 
almost  invariably  contented  themselves  with  planting  a  few  scattering 
bushes,  which  are  left  practically  without  care,  to  be  swamped  by 
brush  and  preyed  upon  by  insects.  Proper  harvesting  and  curing 
methods  are  not  employed.  "  The  fruits  are  torn  from  the  bushes,  injur- 
ing the  bark  and  leaving  the  way  open  for  the  attacks  of  injurious 
insect  pests. 

An  especially  fine  coffee  is  grown  in  the  mountain  regions  of  Ben- 
guet  and  Bontoc  and  in  the  province  of  Lepanto.  The  bushes  yield 
heavy  crops  and  the  unhulled  coffee  at  present  sells  readily  in  Manila 
at  S35  Mexican  per  cavan,  for  consumption  in  these  islands  or  for 
shipment  to  Spain.  Coffee  bushes  come  to  bearing  in  Benguet  in 
three  years.  There  is  no  region  in  the  United  States  which  has  a 
more  healthful  or  delightful  climate  than  is  afforded  by  the  Benguet 
highlands,  where  a  white  man  can  perform  heavy  field  labor  without 
excessive  fatigue  or  injury  to  his  health. 

It  is  almost  impossible  to  secure  in  Manila  the  milk  needed  by  the 
sick.  Fresh  milk  sells  for  75  cents  Mexican  per  wine  quart.  A  dairy 
on  the  outskirts  of  the  city,  with  95  animals,  including  several  bulls, 
was  netting  §5,000  Mexican  per  month  when  the  animals  were  attacked 
by  rinderpest. 

During  the  first  eight  months  of  1902  there  were  cleared  through 
the  custom-house  1-1,071  head  of  beef  cattle,  valued  at  $406,113  United 
States  currency,  and  for  the  same  period  there  were  imported  fresh 
meats,  such  as  beef,  mutton,  and  pork,  to  the  amount  of  846,901 
pounds,  valued  at  $-47,906  United  States  currency.  At  this  rate  we 
are  importing  into  Manila  fresh  meat  to  the  value  of  $609,664  per 
annum,  exclusive  of  that  used  by  the  Army  and  Navy. 


3G4  KKroRTs  OK  TiiK  oiviL  ooveunmp:nt 

Native  oiittlo  are  at  present  worth  $30  to  $50  Mexican  per  head  in 
^Tanila,  and  native  grass-fed  beef  sells  for  40  to  60  cents  Mexican  per 
pound.  The  pastures  of  Benguet,  Lcpanto,  and  Bontoc  afford  one 
vast  well-watered  cattle  range,  whore  there  is  little  doubt  that 
improved  breeds  of  horned  cattle  could  be  successfully  introduced, 
while  in  the  lowlands  there  are  vast  stretches  of  grazing  lands  suitable 
for  raising  cattle  and  carabaos.  The  latter  are  at  present  worth  $150 
to  $300  Mexican  per  head  in  the  Manila  market.  Properly  con- 
ducted cattle  ranches  will  certainly  yield  very  handsome  returns. 

The  present  cholera  epidemic  is  believed  to  have  been  due  to  infected 
vegetables  imported  from  China.  The  Chinese  system  of  manuring 
growing  vegetables  is  such  as  to  make  vegetables  from  that  country 
always  a  source  of  danger  to  the  public  health,  and  it  is  important  that 
we  should  have  our  own  truck  farms  as  soon  as  possible.  As  already 
stated,  experience  has  shown  that  a  considerable  variety  of  vegetables 
can  be  successfully  grown  in  the  lowlands  from  improved  American 
seed,  and  such  vegetables  command  a  ready  sale  at  a  high  price  in  the 
larger  cities. 

Excellent  native  oranges  are  produced  in  the  province  of  Batangas, 
in  the  Calamianes  Islands,  and  elsewhere.  The  trees,  which  are  often 
large  and  vigorous,  seldom  receive  any  care,  nor  has  any  systematic 
effort  been  made  to  improve  the  quality  of  the  fruit,  which  sells  readily 
at  a  good  price.  There  is  every  reason  to  believe  that  improved  cit- 
rus fruits  can  be  successfully  introduced. 

Numerous  new  industries,  such  as  the  raising  of  vanilla  in  the  low- 
lands and  the  cultivation  of  fruits  and  vegetables  peculiar  to  the  tem- 
perate zone  in  Benguet,  ought,  if  properly  conducted,  to  result 
profitably.  Communication  between  Benguet  and  Manila  is  at  present 
slow  and  unsatisfactory.  Great  difficulty  has  been  experienced  in 
constructing  a  carriage  road  from  Baguio,  the  capital  of  the  province, 
to  Pozorubio,  in  the  province  of  Pangasinan,  from  which  point  there 
is  a  highway  to  Dagupan,  but  a  good  horse  trail  will  probably  be 
completed  over  the  12  miles  of  unfinished  road  within  four  or  five 
months,  and  fairly  quick  communication  can  then  be  had  with  Manila 
by  way  of  Dagupan  and  the  railway. 

FUTURE   WORK   OF   THE   BUREAU   OF   AGRICULTURE. 

The  practical  work  of  the  bureau  of  agriculture  will  be  pushed  as 
rapidly  as  possible.  An  experimental  station  for  the  testing  of  seeds 
and  the  growing  of  introduced  plants  and  trees  has  been  established 
within  the  limits  of  the  city  of  Manila,  where  it  can  be  conducted 
under  the  immediate  direction  of  the  chief  of  the  bureau,  and  where 
the  results  obtained  can  be  seen  by  a  large  number  of  people.  An 
experiment  station  for  the  growing  of  rice  upon  a  large  scale  will  be 
established  near  the  center  of  the  great  rice-producing  area  extending 
from  Manila  to  Dagupan.  Other  experiment  stations  will  be  estab- 
lished as  those  already  provided  for  are  put  upon  a  paying  basis. 
Appropriation  has  just  been  made  for  an  extensive  stock  farm  for  the 
introduction  and  breeding  of  draft  and  dairy  animals.  Provincial 
boards  have  been  authorized  to  expend  provincial  funds  for  the  pur- 
chase of  draft  animals  for  breeding  purposes,  with  a  view  to  restock- 
ing the  several  provinces  with  animals  which  have  in  the  past  proved 
useful  and  with  others  which  can  be  profitably  introduced.  The  insu- 
lar purchasing  agent  and  the  chief  of  the  bureau  of  agriculture  have 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  365 

been  directed  to  aid  provincial  boards  in  securing  suitable  animals. 
The  Commission  is  about  to  authorize  the  use  of  government  funds 
for  the  importation  of  draft  animals  to  be  sold  on  easy  terms  in  the 
provinces  where  they  are  most  urgently  needed.  The  success  of  this 
effort  to  restock  the  islands  with  draft  animals  at  the  present  time  is 
absolutely  dependent  upon  the  ability  of  the  serum  institute  to  turn 
out  a  satisfactory  antirinderpestic  serum  in  sufficient  quantities,  and 
no  effort  will  be  spared  to  bring  the  work  of  the  institute  to  a  high 
degree  of  efficiency.  The  examination  of  the  soils  of  the  more 
important  agricultural  provinces  will  be  pushed  as  rapidly  as  possible, 
and  the  results  of  the  work  of  the  bureau  of  agriculture  will  be  made 
known  by  means  of  bulletins  for  the  benefit  of  persons  resident  in 
these  islands  and  of  those  who  may  desire  to  come  here  and  engage 
in  agriculture. 

For  a  fuller  account  of  the  work  already  accomplished  reference  is 
made  to  the  first  annual  report  of  the  chief  of  the  bureau,  which  is 
appended  hereto  and  marked  "Appendix  O." 

WEATHER   BUREAU. 

The  work  of  the  weather  bureau  has  progressed  very  satisfactorily 
during  the  past  year.  Thirty-five  new  stations  have  been  established. 
Of  the  72  stations  provided  for  in  the  act  creating  the  weather  bureau, 
all  but  21  are  now  in  working  order. 

Difficulty  was  experienced  in  many  instances  in  finding  suitable 
buildings  for  the  installation  of  meteorological  instruments,  and  act 
No.  368  was  accordingly  passed,  making  it  obligatory  upon  provincial 
and  municipal  governments  to  provide  suitable  quarters  for  stations 
of  the  weather  bureau,  such  quarters  to  be  in  the  provincial  or  munic- 
ipal buildings,  if  practicable,  and  otherwise  in  buildings  rented  or 
constructed  for  the  purpose  at  the  cost  of  the  province  or  of  fche 
municipality.  The  stations  now  established  cover  a  very  large  area, 
especially  in  latitude,  the  southernmost  lying  in  latitude  6°  3'  north 
and  the  northernmost  in  latitude  20°  25'  north. 

The  weather  predictions  and  storm  warnings  at  Manila,  which,  undei 
the  able  management  of  Father  Algue  and  his  predecessors,  have  been 
good  for  many  years,  have  become  more  accurate  as  the  establishment 
of  new  weather  stations  has  made  available  additional  observations 
from  important  points.  Predictions  and  warnings  are  now  published 
at  all  stations  of  the  weather  bureau  which  are  in  telegraphic  commu- 
nication with  Manila. 

One  great  obstacle  to  successful  work  is  the  frequent  failure  of  the 
telegraph  lines  during  typhoon  weather,  when  they  are  most  badly 
needed.  Many  of  the  lines  were  built  hastily  for  military  purposes. 
Poles  were  often  selected  with  a  view  to  quick  construction  rather 
than  durability  and  were  set  while  green.  When  of  soft  wood  they 
are  attiicked  by  white  ants,  and  if  set  green  they  soon  decay,  so  that 
heavy  winds  cause  frequent  breaks  in  the  lines.  As  the  present  poles 
are  replaced  with  better  ones  of  hard  wood  or  of  metal  this  difficulty  will 
doubtless  disappear  to  a  considerable  extent,  but  lines  running  for 
long  distances  through  forest  will  always  be  broken  during  typhoons 
by  falling  trees  and  branches.  The  rapid  extension  of  cable  lines, 
which  are  much  less  subject  to  breakage,  has  been  of  the  greatest 
service  to  the  weather  bureau. 

23181—04 24 


3G0  REPORTS    OF    THE    CIVIL    (JOVKRNMKNT 

NEW  APPARATUS. 

The  apparatus  at  the  central  station  at  Manila  has  been  increased  by 
the  addition  of  a  Viccntini's  universal  microscismograpb  and  a  ccran- 
uograpli  for  the  recording  of  flashes  of  lightning. 

CROP   SERVICE. 

The  inauguration  of  a  crop  service  in  connection  with  the  weather 
service  has  begun  and  is  progressing  satisfactorily. 

REPORTS. 

The  annual  report  of  observations  for  the  calendar  year  1900  was 
published  at  the  close  of  1901,  and  a  similar  report  for  the  year  1901 
was  issued  in  August,  1902.  Apart  from  the  monthl}^  weather  bulle- 
tins, which  have  appeared  regularly,  there  was  also  issued  in  June, 
1902,  an  exhaustive  and  most  interesting  report  on  the  climate  of 
Baguio,  in  the  province  of  Benguet,  embodying  observations  extend- 
ing over  the  period  from  September  1,  1900,  to  September  1,  1901. 

A  pamphlet  entitled  "Ground  Temperature  Observations  at  Manila, 
1896-1902,"  has  recently  been  published,  and  copy  for  another 
pamphlet  entitled  "Report  on  the  Seismic  and  Volcanic  Centers  of  the 
Philippine  Archipelago  "  has  been  sent  to  the  Public  Printer. 

ASTRONOMICAL   AND   MAGNETIC   WORK. 

The  weather  bureau  furnishes  standard  time  daily  by  telegraph  to 
all  telegraph  offices  throughout  the  archipelago.  Standard  time  is  also 
furnished  at  noon  to  the  shipping  in  the  harbor  at  Manila  by  means  of 
a  time  ball  displaved  at  the  observatory  building,  and  to  the  business 
center  of  the  city  by  a  gun  on  Fort  Santiago,  which  is  fired  from  the 
observatory  by  electricit3% 

For  further  information  in  regard  to  the  work  of  the  weather 
bureau,  reference  is  made  to  the  report  of  the  director,  which  is 
appended  hereto  and  marked  "Appendix  P." 

BUREAU  OF  NON-CHRISTIAN  TRIBES. 

Pagan  or  Mohammedan  tribes  are  found  in  Luzon,  Mindanao, 
Panay,  Negros,  Samar,  Mindoro,  Basilan,  the  Sulu  Archipelago, 
Balabac,  Palawan,  and  the  Calamianes  Islands.  The  number  of  these 
peoples  has  been  only  roughly  guessed  at,  and  there  is  a  lamentable 
lack  of  accurate  information  in  regard  to  them  upon  which  to  base 
intelligent  legislation.  Their  presence  and  the  existence  among  them 
of  head-hunting,  slave  hunting,  polygamy,  and  other  objectionable 
practices  create  serious  problems  for  the  insular  government.  With 
a  view  to  investigating  their  actual  condition  and  to  the  conducting  of 
scientific  investigations  with  reference  to  the  ethnology  of  the  Fili- 
pinos, a  bureau  of  non-Christian  tribes  was  created  by  act  No.  253 
on  October  2,  1901.  A  skeleton  organization,  consisting  of  a  chief  of 
the  bureau,  one  clerk,  and  an  agent  for  Moro  afi'airs  in  the  Jolo  Archi- 
pelago, was  provided,  and  it  was  made  incumbent  upon  the  chief  of 
the  bureau  at  a  later  date  to  recommend  a  permanent  organization. 
Dr.  David  P.  Barrows,  who  was  at  that  time  employed  in  the  bureau 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  367 

of  public  instruction  as  superintendent  of  Manila  schools,  and  who 
was  particularly  fitted  by  his  special  studies  in  ethnology  at  the  Uni- 
versity of  Chicago  and  by  his  practical  field  work  among  the  Indians 
of  the  western  United  States  for  this  position,  was  appointed  chief  of 
the  bureau,  and  in  December  was  directed  to  go  to  the  United  States, 
confer  with  Government  oflicials  at  Washington,  and  visit  Indian  res- 
ervations and  schools,  with  a  view  to  the  gathering  practical  information 
which  would  be  of  aid  to  him  in  his  work  here.  Meanwhile  the  work 
of  the  bureau  was  left  in  charge  of  the  chief  clerk.  Dr.  Barrows 
returned  from  the  United  States  in  ISIay. 

In  order  to  secure  further  information  as  to  the  number,  names,  and 
habitats  of  the  wild  tribes,  and  to  learn  the  names  of  persons  who 
could  give  more  or  less  accurate  accounts  of  them,  I  prepared  a  circu- 
lar letter  of  inquiry  prior  to  the  organization  of  the  bureau.  This 
letter  was  sent  by  the  bureau  to  every  provincial  governor  and  to  the 
president  of  every  organized  municipality  in  the  archipelago.  Some 
900  replies  have  been  received,  and  the  work  of  tabulating  the  infor- 
mation therein  contained  has  been  very  considerable. 

A  syllabus  for  the  study  of  the  non-Christian  tribes  is  nearly  ready 
for  publication.  The  working  force  of  the  bureau  has  been  increased 
by  the  addition  of  an  assistant  chief,  two  clerks  of  class  H,  one 
employee  at  |180  per  annum,  and  one  employee  at  S90  per  annum. 
Dr.  Albert  E.  Jenks  was  appointed  assistant  chief.  Dr.  Barrows  and 
Dr.  Jenks  are  at  present  engaged  in  field  work  among  the  little-known 
wild  tribes  of  northern  Luzon. 

A  considerable  amount  of  valuable  ethnological  material  has  been 
gathered  and  is  being  cared  for  by  employees  of  the  bureau  pending 
the  securing  of  suitable  facilities  for  exhibiting  it.  The  collector  and 
assistant  collector  of  natural-history  specimens  are  also  temporarily 
included  among  the  employees  of  the  bureau  of  non-Christian  tribes 
for  purposes  of  administration. 

When  the  work  at  present  in  progress  in  northern  Luzon  has  been 
concluded  it  is  purposed  to  transfer  the  entire  field  force  of  the  bureau 
to  the  island  of  Mindanao,  with  a  view  to  the  gathering  of  data  which 
may  be  useful  in  the  solution  of  the  serious  problems  presented  by  the 
numerous  Mohammedan  and  pagan  tribes  of  that  island. 

For  further  information  with  reference  to  the  work  already  accom- 
plished by  the  bureau  of  non-Christian  tribes  and  that  contemplated  in 
the  future,  as  well  as  for  a  brief  review  of  Philippine  ethnology,  ref- 
erence is  made  to  the  report  of  the  chief,  which  is  appended  hereto 
and  marked  "Appendix  Q." 

Very  respectfully,  Dean  C.  Worcester,  Secretary. 


REPORT  OF  THE  SECRETARY  OF  FINANCE  AND 

JUSTICE. 


Department  of  Finance  and  Justice, 

Office  of  the  Secretary, 

Manila,  P.  I.,  November  1,  1902. 
The  Philippine  Commission. 

Gentlemen  :  I  liereby  submit  a  report  on  matters  appertaining  to 
the  department  of  finance  and  justice  in  the  Philippine  Islands  dur- 
ing the  period  from  October  15,  1901,  to  September  30,  1902. 

The  statistics  herein  contained  will  be  those  prior  to  the  last-named 
date,  except  when  otherwise  stated.  The  first-named  date  is  the 
beginning  of  the  period  covered  by  this  report,  inasmuch  as  matters 
prior  to  that  date  were  included  in  the  second  report  of  the  Philippine 
Commission  to  the  Secretary  of  War. 

This  report  includes  many  matters  of  a  legislative  character,  as  well 
as  those  that  are  purely  administrative,  both  because  I  have  occupied 
two  liositions — that  of  a  member  of  the  legislative  body  and  that  of  an 
administrative  official — and  because  this  report  is  to  be  attached  to 
the  report  of  the  Commission  to  the  Secretary  of  War,  and  will  con- 
tain data  of  transactions  appertaining  to  this  department,  both  legis- 
lative and  administrative. 

administration  of  justice. 

At  the  date  of  the  last  report  of  the  Philippine  Commission  to  the 
Secretary  of  War  a  complete  judicial  system  had  been  organized  cov- 
ering the  whole  archipelago,  the  municipal  code  providing  for  the 
trial  of  violators  of  municipal  ordiuances  by  the  presidentes,  other 
laws  authoriziug  the  appointment  of  justices  of  the  peace  for  trial  of 
minor  offenses  and  civil  actions  involving  small  amounts  and  the  pre- 
liminary investigation  of  higher  crimes,  one  justice  of  the  peace  being 
provided  for  every  muuicipality,  and  creating  courts  of  fii-st  instance 
that  are  courts  of  record  and  of  general  jurisdiction,  one  being  [)ro- 
vided  for  each  province,  but  the  city  of  Manila  having  two  judges, 
courts  of  fii'st  instance  holding  sessious  at  least  twice  a  ^-ear  in  tlio 
smaller  provinces  and  in  the  more  important  ones  three  or  four  times, 
and  the  whole  archipelago  divided  into  14  judicial  districts  outside 
the  city  of  Mauila,  one  judge  for  each  judicial  district,  with  a  special 
tribunal  for  disposing  of  arrearages  of  litigation  in  the  island  of 
Negros,  and  a  suprem<i  court,  consisting  of  a  chief  justice  and  six 
associate  justices,  witii  a(l('(|uate  provisions  for  reporting  the  decisions 
of  tlie  supreme  court,  and  for  representation  of  the  government,  gen- 
eral and  local,  in  all  litigation  by  the  attorney-genei-al,  solicitor- 
general,  and  their  assistants,  and  i)rovincial  (iscals,  with  a  special 
municipal  system  of  courts  for  tlu^  city  of  Manila  and  with  a  notarial 

369 


370  REPORTS    OF    THE    CIVIL    GOVERNMENT 

systoiu  for  tho  archipelago.  The  sj^stem  lias  now  lieen  in  complete 
operalion  for  soniethinii;  more  than  one  year.  The  now  code  ot  civil 
procedure,  mentioned  in  the  Commission's  former  report,  lias  been  in 
operation  for  one  year,  and  experience  has  demonstrated  that  the 
indicial  system  largely  meets  the  needs  of  the  islands.  The  judges 
iiave  been  in  the  main  able,  industrious,  upright,  and  devoted  to  their 
work. 

All  the  Filipino  judges  of  tlio  supreme  court  and  courts  of  first 
instance  who  were  originally  appointed,  with  one  exception,  are  still 
in  office  and  have  fulfilled  the  expectations  of  the  Commission  enter- 
tained at  the  time  of  their  appointment.  While  they  have  found  it 
difficult  to  expedite  proceedings  in  accordance  with  American  methods 
and  to  adapt  themselves  to  the  necessary  new  procedure,  they  have 
made  very  rapid  improvement  in  this  respect  and,  in  acquiring  the 
English  language.  With  perhaps  one  exception,  they  have  admin- 
istered the  law  fearlessly  and  ably,  dealing  with  their  own  people  and 
with  Americans  with  an  even  hand.  It  is  believed  that  the  wisdom 
of  appointing  a  considerable  number  of  Filipinos  judges  has  been 
aptly  vindicated  by  experience  and  that  in  the  process  of  time  the 
proportion  of  Filipino  judges  may  be  increased  without  impairing  the 
efficiency  of  the  administration  of  justice.  The  new  code  of  procedure 
in  civilactions  and  special  proceedings  has  greatly  facilitated  the 
dispatch  of  business,  and  all  the  courts  are  teaching  the  people  a 
needed  lesson  of  subordination  to  law  and  that  their  rights  of  person 
and  property  can  safely  be  reposed  in  the  courts  and  will  be  vindi- 
cated and  protected  therein  without  resorting  to  violence;  and  this  is 
a  new  condition  in  the  Philippine  Islands. 

The  fiscals,  or  prosecuting  officers  in  the  provinces,  are  without 
exception  Filipinos.  While"  some  who  were  appointed  have  been 
found  incompetent  and  have  been  siTperseded  by  others,  in  the  main 
these  officials  have  rendered  u.seful  and  valuable  services,  and  are 
each  day  becoming  more  efficient  as  they  become  more  familiar  with 
American  methods. 

The  justices  of  the  peace  necessarily  find  great  difficulty  in  perform- 
ing their  duties  satisfactorily,  but  they  are  gradually  receiving  instruc- 
tion in  that  behalf  from  the  judges  of  the  courts  of  first  instance,  and 
are  to  be  soon  supplied  with  a  manual,  to  be  prepared  by  the  attorney- 
general,  defining  particularly  their  methods  of  procedure.  Appeals 
are  made  easy  and  inexpensive,  so  that  errors  committed  by  justices 
of  the  peace  can  readily  be  corrected  in  the  higher  courts. 

NEW  LEGISLATION  RELATING  TO  COURTS. 

The  Spanish  law  upon  the  subject  of  libel  and  slander  was  exceed- 
ingly incomplete  and  filled  with  incongruities,  and  provided  banish- 
ment as  one  of  the  principal  penalties.  To  remedy  these  defects,  on 
October  24,  1901,  act  No.  277  was  passed  defining  the  law  of  libel, 
making  it  a  misdemeanor,  giving  a  right  of  civil  action  therefor,  mak- 
ing obscene  or  indecent  publications  misdemeanors,  prohibiting  the 
right  to  recover  civil  damages  in  a  criminal  prosecution  for  libel,  and 
providing  reasonable  penalties  by  fine  or  imprisonment,  substantially 
as  in  the  United  States.  Under  the  Spanish  law  the  truth  could  not 
be  shown  in  a  defense  of  a  criminal  prosecution  for  libel.  Under  act 
277  the  defendant  is  entitled  to  an  acquittal  upon  showing  the  truth 
to  be  as  charged  in  the  libel,  and  that  the  matter  charged  as  libelous 
is  published  for  good  motives  and  justifiable  ends.     There  have  been 


OB^   THE    PHILIPPINE    ISLANDS,   1900-1903.  371 

but  two  prosecutions  under  the  act,  one  of  the  editor  and  publisher 
of  an  American  newspaper  and  the  other  of  the  editor  and  publisher 
of  a  Spanish  newspaper.  Both  resulted  in  convictions,  which  have 
greatly  improved  the  tone  and  character  of  the  newspapers  in  the 
islands. 

On  November  1,  1001,  an  act  was  passed  "providing  an  inexpen- 
sive method  of  administration  upon  the  estates  of  civil  employees  of 
the  Philippine  government  who  are  citizens  of  the  United  States  and 
who  die  in  the  service  of  the  insular  government,  leaving  small  estates 
upon  which  no  regular  administration  is  deemed  advisable."  The 
administration  in  such  case  is  confided  to  the  treasurer  of  the  Philip- 
pine Archipelago,  who  administers  the  estates  in  a  very  inexpensive 
manner,  and,  after  payment  of  the  debts  and  expenses,  remits  the 
amount  of  the  estate  left  in  his  hands  to  the  lawful  heirs. 

On  November  4,  1901,  act  No.  292  was  passed,  entitled  "An  act 
defining  the  crimes  of  treason,  insurrection,  sedition,  conspiracies  to 
commit  such  crimes,  seditious  utterances,  whether  written  or  spoken, 
the  formation  of  secret  political  societies,  the  administering  or  taking 
of  oaths  to  commit  crimes  or  to  prevent  the  discovery  of  the  same, 
and  the  violations  of  oaths  of  allegiance,  and  prescribing  punishment 
therefor."  In  the  main  this  act  is  based  upon  the  provisions  of  the 
United  States  statutes  covering  the  same  subject,  and  upon  the  pro- 
visions of  the  acts  of  the  legislatures  of  the  several  States.  Sections 
9  and  10  introduce  features  not  common  in  the  United  States. 

Section  9  provides  that^All  persons  who  shall  meet  together  for  the  purpose  of 
forming,  or  who  shall  form  any  secret  society  or  who  shall  after  the  passage  of 
this  act  contmue  membership  in  a  society  already  formed  ha\-ing  for  its  object,  in 
whole  or  in  part,  the  promotion  of  treason,  rebellion  or  sedition,  or  the  promul- 
gation of  any  political  opinion  or  policy,  shall  be  punished  by  a  fine  not  exceed- 
ing one  thousand  dollars  or  by  imprisonment  not  exceeding  one  year,  or  both. 

It  will  be  observed  that  this  section  does  not  prohibit  secret  socie- 
ties or  the  open  promulgation  of  political  opinion  or  policy,  but  only 
membership  in  a  secret  society  "having  for  its  object,  in  whole  or  in 
part,  the  promotion  of  treason,  rebellion,  or  sedition,  or  the  promul- 
gation of  any  political  opinion  or  policy."  Sedition  and  rebellion  in 
the  Philippine  Islands  have  always  been  promoted  through  the  agency 
of  secret  societies,  and  it  is  exceedingly  difficult  to  draw  the  line 
between  a  secret  society  having  for  its  object  the  promotion  of  pohti- 
cal  opinion  and  one  having  for  its  object  the  promotion  of  rebellion 
and  sedition;  the  two  are  usually  combined.  The  method  adopted  by 
such  societies  for  promulgating  political  opinions  or  policies  has  been 
almost  invariably  by  promoting  rebellion  or  sedition  through  secret 
associations.  It  was  considered  desirable  that  the  promulgation  of 
political  opinion  or  policy  sliould  be  open,  public,  and  known,  not 
secret,  stealthy,  and  surreptitious.  It  is  believed  that  actual  condi- 
tions required  this  legislation. 

Section  10  makes  it  unlawful  for  any  person  to  advocate  orally  or 
by  writing  or  printing  or  by  like  methods  the  independence  of  the 
Philippine  Islands  or  their  separation  from  tlie  United  States,  either 
by  peaceable  or  forcible  means,  or  to  print,  publish,  or  circulate  any 
handbill,  iiewsi)aper,  or  other  ])ublicafeion  advocating  such  independ- 
ence or  separation ;  l)ut  this  proliibil  ion,  by  its  terms,  is  to  continue  m 
force  only  until  it  has  been  officially  proclaimed  that  a  state  of  war 
or  insurrection  against  the  authority  or  sovereignty  of  the  United 
States  no  longcn-  exists  in  tln^  Philippine  Islands.  Such  ])roclaniation 
having  been  issued  by  the  President  on  the  4th  day  of  July,  1902,  sec- 


872  REPORTS    OF    THE    CIVIL    GOVERNMENT 

tton  10  is  no  long'er  operative.  But  while  a  state  of  war  existed  here 
it  was  lu.ulily  danuorons  to  allow  oi-gaiilzations,  parties,  and  the  press 
to  aiiitalo  llic  separation  of  the  islands  from  the  United  States.  Hnch 
aiiitation  directly  tended  to  stimulate  and  ])r()nu)te  the  insurrection 
and  to  continue  it.  Peaceful  ai>itators  at  sucli  a  time  cooperated  most 
elfectually  with  the  armed  agitators  in  the  jungle.  It  is  not  believed 
that  in  any  country  during  the  time  of  war  an  agitation  of  such  a 
character  would  be  tolerated,  least  of  all  in  one  where  people  were 
unt  rained  in  the  exercise  of  free  speech  and  were  certain  in  their  first 
enjoyment  of  it  to  indulge  in  excesses. 

Under  this  act  there  has  been  one  i^rosecution,  followed  by  convic- 
tion, of  the  editor  and  publisher  of  an  American  newspaper  in 
Manila.  That  newspaper  had  long  adopted  a  policy  of  charging 
Filipinos  who  were  appointed  to  oflice  with  wholesale  corruption,  and 
had  continually  indulged  in  arraignment  of  every  measure  that  was 
adopted  for  the  i:>acitication  of  the  islands.  It  had  attempted  to 
incite  to  the  highest  degree  hostility  between  Americans  and  Fili- 
j)inos  and  to  intensify  jjrejudices  that  inevitably  existed.  No 
other  newspaper  has  been  prosecuted  under  the  act.  The  war 
having  terminated,  it  is  improbable  that  any  further  j)rosecution  of 
newspapers  for  sedition  will  be  necessary.  Quite  a  number  of  Fili- 
pinos who  had  taken  the  oath  of  allegiance  and  had  violated  it  by 
aiding  in  the  insurrection — secreting  arms,  furnishing  money  and 
information  to  the  insurgents — were  prosecuted,  and  such  as  were 
proven  guilty  were  convicted,  and  others  were  acquitted.  But  the 
amnest}"  proclamation  issued  by  the  President  on  the  4th  day  of  July, 
1902,  released  those  who  had  been  so  convicted  for  all  offenses  com- 
mitted prior  to  the  1st  day  of  May,  1902.  If  further  prosecutions  of 
Filipinos  are  necessary  for  seditious  offenses  committed  hereafter,  it 
will  be  mainly  by  reason  of  the  connection  of  some  restless  Filipinos 
with  secret  societies  having  for  their  object  political  agitation, 
coupled  with  robbery,  assassination,  and  plunder  of  those  who  will 
not  join  in  the  agitation. 

On  Februarj^  6,  1902,  the  customs  administrative  act  was  passed, 
chapter  23  of  which  i^rovides  for  the  creation  of  a  court  of  customs 
appeals,  of  which  the  secretary  of  finance  and  justice  should  be  j) resi- 
dent, one  of  the  judges  of  the  supreme  court  to  be  an  associate  judge, 
and  a  third  judge  to  be  appointed  who  should  also  act  as  a  clerk  of 
the  court.  To  that  court  was  given  exclusive  jurisdiction  of  all  crimi- 
nal offenses  arising  out  of  the  administration  of  the  law  relating  to 
the  payment  and  collection  of  customs  duties,  and  of  all  appeals  from 
the  ruling  of  the  collector  of  customs  for  the  Philippine  Archipelago 
as  to  classification  of  imiDorted  or  exj)orted  merchandise,  and  as  to  the 
imposition,  administrativelj^,  of  fines  and  penalties  or  decrees  of  for- 
feiture or  confiscation  by  the  collector  of  customs  whenever  such  fines, 
penalties,  and  forfeitures  or  confiscations  should  exceed  1500  in 
amount.     Section  288  provides,  among  other  things,  as  follows : 

The  remedy  by  appeal  to  the  court  of  customs  appeals  is  exclusive  of  all  other 
remedies  upon  all  questions  arising  relating  to  the  customs  duties,  or  the  admin- 
istration thereof,  under  this  act.  No  right  of  action  shall  exist  on  the  part  of  the 
owner,  importer,  exporter,  or  consignee  to  recover  back  any  duties,  fees,  exac- 
tions, or  fines  by  him  or  them  paid,  except  by  means  of  appeal  in  accordance  with 
the  provisions  of  this  act.  No  appeal  shall  lie  to  any  tribunal  from  the  judgment 
of  the  cf)urt  of  customs  appeals,  nor  shall  any  tribunal  have  the  right  to  review 
its  decisions  or  proceedings  in  any  foi-m. 

Under  the  general  i^rovisions  of  the  act  the  action  of  any  collector 
of  customs  is  reviewable  by  the  collector  of  customs  for  the  Philip- 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  373 

pine  Archipelago,  so  tliat  all  questions  arising  at  the  clifEerent  jDorts 
of  entry  come  to  Manila  for  determination  bj'  the  insular  collector. 
It  was  considered  expedient,  therefore,  that  all  the  litigation  arising 
out  of  the  customs  administrative  act  should  be  carried  on  at  Manila 
and  in  a  single  court  where  there  would  be  uniformity  of  decision  and 
speedy  action. 

The  court  was  organized  soon  after  the  passage  of  the  act,  and  has 
down  to  date  disposed  of  every  original  action  or  aj)peal  pending 
therein.  It  is  thought  that  no  better  system  for  the  economical,  uni- 
form, and  speed}'  determination  of  such  questions,  under  the  condi- 
tions that  exist  in  these  islands,  can  at  present  be  devised.  The  earlier 
appeals  that  came  into  that  court  raised  to  a  large  extent  questions 
involved  in  the  "Insular  cases"  recently  decided  by  the  Supreme 
Court  of  the  United  States.  The  decisions  of  tlie  court  of  customs 
appeals  in  the  cases  referred  to,  invehing  all  phases  of  those  ques- 
tions, are  hereto  attached  and  marked  "Exhibit  A." 

On  May  9,  1902,  act  No.  396  was  passed  increasing  the  number  of 
Judges  of  the  courts  of  first  instance,  and  fixing  the  salaries  of  the 
additional  judges  pro^aded  for.  Experience  demonstrated  that  two 
judges  of  the  court  of  first  instance  were  unable  to  keep  abreast  of 
the  "business  in  the  city  of  Manila.  One  additional  judge  was,  there- 
fore, provided  for  that  court.  It  was  likewise  found  that  more  or  less 
judges  of  other  courts  of  first  instance  would  ordinarily  be  absent 
from  their  post  of  duty,  by  reason  of  illness  or  earned  leave  of  absence, 
and  that  in  order  to  meet  such  difficulties,  and  also  to  relieve  the 
j)ressure  of  accumulated  business  in  some  of  the  districts,  the  appoint- 
ment of  four  additional  judges  was  necessarj-  who  could  be  assigned 
to  such  province,  from  time  to  time,  as  might  be  necessary.  It  is 
probable  that  eventually  the  arcliipelago  may  be  redistricted,  but 
there  has  not  yet  been  sufficient  experience  to  demonstrate  upon  what 
lines  such  redistricting  should  be  made.  The  operation  of  the  act 
lias  been  to  enable  the  courts  regularly  to  be  carried  on  in  all  the 
provinces  and  to  dispose  of  arrearages  of  old  litigation  that  had 
accumulated  during  the  latter  portion  of  the  Spanish  regime  and 
during  the  prevalence  of  the  war. 

The  salary  of  the  additional  judge  appointed  for  the  city  of  Manila 
was  made  $5,500,  the  same  salary  as  the  other  judges  of  that  court 
receive.  The  salaries  of  the  judges  at  large  were  fixed  at  $4,500. 
Under  this  act,  Hon.  Byron  S.  Ambler,  of  Ohio,  was  appointed  as 
additional  judge  for  the  city  of  Manila,  and  Hon.  William  II.  Pope, 
of  New  Mexico,  Hon.  William  S.  Norris,  of  Nebraska,  Hon.  James 
H.  IMount,  jr.,  of  Georgia,  have  been  appointed  as  judges  at  large,  leav- 
ing one  vacancy  in  that  class  of  judges.  Judge  Blount  has  served  for 
sometliing  over  a  year  as  judge  of  the  first  judicial  district,  and  has 
received  this  promotion.  To  succeed  him  Hon.  Adolpli  Wislizenus, 
of  Missouri,  has  been  appointed  judge  of  the  court  of  first  instance 
for  the  first  judicial  district.  Hon.  G.  II.  Wliitsett,  judge  of  the  four- 
teenth judicial  district,  has  been  obliged  to  return  home  on  account  of 
ilbiess  in  his  family,  and  has  ]>een  succeeded  by  Ibm.  John  S.  Powell, 
of  Geoi-gia.  In  the  twelfth  judicial  district,  II(jn.  Juan  do  Leon  has 
resigned  by  reason  of  illness  in  his  family,  and  the  vacancy  has  not 
yet  been  filled,  the  duties  of  judge  in  that  judicial  district  being  tem- 
porarily performed  by  Judge  Pope.  Judge  Jolin  S.  Powell  long  served 
in  the  Army  of  the  United  States  in  the  Philippine  Islands. 

For  the  court  of  customs  appeals,  Chief  Justice  Arellano  has  been 
assigned  as  one   of  the  judges,   and   Hon,  Amasa  S.  Crossfield,   of 


874  REPORTS    OF    THE    CIVIL    GOVERNMENT 

INriimesota,  lias  been  appointed  as  the  third  judge  and  clerk.  Jud,ue 
Cros^Mold  was  pvioi-  to  his  appointment  city  assessor  and  collector  oL" 
the  city  of  .^lanila,  and  before  that  time  collector  of  customs  for  the 
port  of  Cebu,  and  was  a  captain  in  the  army  of  the  United  States  in 
the  Philippiues. 

The  work  of  the  special  court  mentioned  in  the  Com?nission's  last 
former  report,  which  was  provided  for  disposing  of  the  arrearages  of 
litiuation  in  the  island  of  Negros,  has  been  completed,  all  arrearages 
liavinu"  been  linally  disposed  of,  and  the  court  has  by  operation  of 
law  ceased  to  exist.'  Its  judge  has  been  promoted  temporarily  to  the 
position  of  judge  at  large  and  is  now  disposing  of  about  800  old  cases 
peiuling  in  the  province  of  Capiz. 

Admiralty  jurisdiction  had  been  largely  exercised  by  provost  courts 
organized  during  the  military  regime,  and  it  was  deemed  necessary 
to  make  adequate  provision  for  the  criminal  admiralty  jurisdiction  in 
courts  of  first  instance,  they  having,  by  virtue  of  act  No.  136,  original 
civil  jurisdiction  in  admiralty.  Accordingly  on  May  IG,  1902,  an  act 
was  passed  extending  to  courts  of  first  instance  jurisdiction  over  mari- 
time oflEenses,  section  1  of  which  confers  upon  courts  of  first  instance 
jurisdiction — 

of  all  crimes  and  offenses  committed  on  the  high  seas  or  beyond  the  jurisdiction 
of  any  country  or  within  any  of  the  navigable  waters  of  the  Philippine  Archi- 
pelago, on  board  a  ship  or  water  craft  of  any  kind,  registered  or  licensed,  in  the 
Philippine  Islands,  in  accordance  with  the  laws  thereof.  The  jurisdiction  herein 
conferred  mav  be  exercised  by  the  court  of  first  instance  in  any  province  into 
which  the  ship  or  water  craft  upon  which  the  crime  or  offense  was  committed 
shall  come  after  the  commission  thereof:  Provided,  nevertheless,  That  the  court 
first  lawfully  taking  cognizance  thereof  shall  have  jurisdiction  of  the  same  to  the 
exclusion  of  all  other  courts  in  the  Philippine  Islands. 

Section  2  of  the  act  transferred  to  courts  of  first  instance  all  civil 
actions  pending  in  provost  courts  and  all  jurisdiction  over  criminal 
actions  in  admiralty  except  such  as  might  arise  in  any  province  or 
district  exclusively  under  military  control,  wherein  the  jurisdiction  of 
provost  courts  was  made  concurrent  with  that  of  courts  of  first  instance 
over  criminal  actions  in  admiralty;  but  as  the  whole  archipelago,  aside 
from  the  Moro  country,  is  now  organized  under  civil  government, 
maritime  and  admiralty  jurisdiction  over  criminal  and  civil  actions  is 
now  fixed  in  the  ordinary  civil  courts. 

ATTORNEY-GENERAL'S   OFFICE. 

The  report  of  the  attorney-general  is  liereto  annexed  and  marked 
"Exhibit  1."  In  its  statements  it  covers  the  organization  of  the  ofBce 
and  the  character  and  volume  of  the  business  transacted  therein  from 
the  date  of  the  organization  of  the  office,  on  July  16,  1901,  to  Septem- 
ber 1, 1902.  The  attorney-general  has  during  that  period  rendered  to 
the  civil  governor,  the  heads  of  departments  and  members  of  the  Com- 
mission and  other  civil  officers  -408  written  opinions;  has  returned  to 
the  supreme  court  402  cases  therein  pending,  with  the  opinion  of  the 
solicitor-general  thereon;  has  briefed  and  argued  in  the  supreme 
court  67  cases;  has  appointed  218  subordinate  officials  for  courts  of 
first  instance;  considered  and  made  recommendations  to  the  governor 
upon  171  applications  for  pardon,  and  has  sent  out  2,068  other  official 
communications.  The  attorney-general's  office  has  exercised  a  general 
supervision  over  the  fiscals  of  the  different  provinces,  the  supervisor 
of  fiscals  and  the  assistant  attorney-general  going  from  province  to 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  375 

province,  as  the  occasion  required,  to  assist  in  important  prosecutions 
or  to  investigate  matters  pertaining  to  the  administration  of  justice 
in  courts  of  first  instance. 

CRIMINAL  CODE. 

A  new  criminal  code  has  been  prepared  by  Commissioner  Wright 
and  reviewed  by  him,  together  with  the  president  of  the  Commission 
and  Commissioner  Ide,  the  lawyers  of  the  Commission.  It  is  now  sub- 
stantially ready  for  enactment,  and  will  come  up  for  public  hearing 
within  a  very  few  weeks,  and  doubtless  will  be  enacted  and  in  force 
before  the  1st  day  of  January,  1903.  Comment  thereon  will  be  reserved 
till  another  report. 

CODE  OF  CRIMINAL  PROCEDURE. 

A  new  code  of  criminal  procedure  has  been  prepared  by  Commis- 
sioner Wright;  but  it  has  not  yet  been  praiCticable  for  the  Commission 
to  act  upon  it,  owing  to  the  pressure  of  other  work.  It  will,  however, 
be  enacted  at  the  earliest  i^racticable  moment. 

REGISTRATION  OF  LAND  TITLES. 

A  bill  of  128  sections  has  been  j)repared  by  Commissioner  Ide  apply- 
ing to  the  Philippine  Archipelago  substantially  the  principles  of  the 
Torrens  system  of  land  registration.  The  bill  has  been  considered 
in  public  session,  and,  after  discussion  and  such  amendments  as 
seemed  wan-anted  by  reason  of  the  discussion,  has  been  passed  and 
goes  into  effect  on  the  1st  day  of  January,  1903.  The  enactment  of 
such  legislation  here  is  of  the  highest  importance.  Titles  and  bound- 
aries at  present  are  so  uncertain  that  capital  is  deterred  from  invest- 
ment by  reason  thereof,  imi)ortant  enterprises  that  otherwise  would  be 
undertaken  are  not  entered  upon,  and  rates  of  interest  for  loans  upon 
real  estate  are  exceedingly  high  and  loans  on  such  security  are  often 
impossible  to  secure  at  any  rate  of  interest.  The  evils  of  the  present 
system  are : 

1.  Great  expense  in  the  investigation  of  the  title  and  in  the  transfer. 

2.  Bela}^  which  often  extends  so  long  in  the  investigation  of  the 
title  as  to  prevent  a  prospective  sale. 

3.  Insecurit3\  Enormous  numbers  of  homes  in  the  islands  are 
owned  without  any  written  evidence  of  title  whatever,  and  where 
there  is  written  evidence  of  title  boundaries  are  uncertain.  The 
opinions  of  lawyers  who  investigate  titles  furnish  little  socurit3\ 

4.  There  is  a  constant  lengthening  of  the  chain  of  deeds  to  be  exam- 
ined, increasing  the  expense  and  delay. 

5.  These  defects  operate  as  a  perpetual  tax  uiion  the  holder  of  real 
estate,  depreciate  its  value,  and  make  it  an  exceedingly  slow  asset. 

Under  the  Torrens  system,  as  proposed  to  be  established  here,  the 
land  owner  receives  a  cei-tificatc  aft(;r  duo  investigation  of  the  title 
by  a  tribunal  instituted  for  that  purpose,  which  certificate  is  as  simple 
as  a  certificate  of  stock  in  a  corporation,  showing  on  its  face  in  whom 
the  title  is  vested  and  also  all  the  liens  or  other  interests  existing  in 
the  i)remises.  Tlie  coi-rectness  of  tliis  eerlificate  is  guai-anteed  by 
law,  the  government  standing  l)ack  of  it,  and  liaving  an  assurance 
fund,  created  b}'  imposing  upon  those  wlio  bi-ing  Iheir  lands  under 
th(!  system  a  small  perccntag**  of  tlie  value  of  tlie  land  at  the  time  the 
land  is  lu'ouglit  under  the  operation  of  the  act,  which  accumulated 


370  REPORTS    OF   THE    CIVIL    GOVERNMENT 

fund  oporales  as  a  fund  to  whieh  anyone  who  loses  his  land  by  voason 
of  the  act  may  resort  for  indemnity. 

The  advantages  of  the  system  may  bo  briefly  stated  thus: 

1.  J)imi))ulio)i  of  expense. — The  expense  of  the  official  registration 
probably  Avill  not  exceed  the  cost  of  a  single  transfer  under  the  pres- 
ent systi.MU,  and  in  all  subsequent  transfers  the  expense  will  be  much 
less  than  now. 

2.  Speed. — In  the  generality  of  cases  the  transfer  or  mortgage, 
including  the  examination  of  titles,  may  all  be  completed  in  a  very 
short  time,  and  without  the  aid  of  counsel. 

3.  Securifi/. — The  title  is  cleared  at  every  transfer ;  there  is  no  long 
chain  of  deeds  to  be  examined,  and  the  title  is  guaranteed  by  the  law 
and  is  unassailable. 

4.  No  deeds  are  recorded;  the  original  or  duplicate  deed  is  fded  and 
left  with  the  register,  whereby  the  records  are  greatly  shortened. 

5.  Such  a  safe,  short,  and  inexpensive  method  of  transfer  increases 
the  value  of  the  land,  and  makes  it  a  much  quicker  asset,  and  one 
upon  which  money  can  be  borrowed  at  a  lower  rate  of  interest. 

The  general  principles  of  the  act  perhaps  may  be  briefly  stated 
thus : 

1. -An  examination  of  title  by  a  court  of  competent  jurisdiction, 
after  actual  notice  to  all  occupants  and  adjoining  owners,  and  con- 
structive notice  to  all  the  world  by  publication. 

2.  Registration  of  the  title  as  found  upon  such  examination. 

3.  Issuance  of  a  certificate  of  title. 

4.  Reregistration  of  title  upon  further  subsequent  transfer. 

5.  Notice  upon  the  certificate  of  any  matter  affecting  the  title, 
claims  not  registered  having  no  validity. 

G.  Indemnity  against  loss  out  of  an  assurance  fund. 

INSULAR  COLD  STORAGE  AND   ICE  PLANT. 

This  plant  was  originally  erected  out  of  insular  funds,  by  direction 
of  the  Secretary  of  War,  primarily  for  the  purpose  of  furnishing  ice 
for  the  use  of  the  army  and  navy  in  the  Philippines.  Having  been 
built  from  insular  funds,  it  was  upon  its  completion,  bj^  direction  of 
the  Secretary  of  War,  passed  over  to  the  insular  government  for 
administration.  The  contract  made  between  the  insular  government 
and  the  military  authorities  for  the  fiscal  year  1902  has  been,  with 
minor  changes,  renewed  for  the  fiscal  year  1003.  Under  that  contract 
the  army  receives  ice  at  the  rate  of  one-half  cent  per  pound  and  cold 
storage  at  the  rate  of  3^  cents  per  cubic  foot  per  month,  which  prices 
have  resulted  in  saving  iDractically  one-half  the  expense  for  ice  and 
cold  storage  by  the  army  in  the  Philippines. 

The  navy  in  these  islands  receives  such  ice  and  cold  storage  as  it 
requires  at  the  same  prices.  Likewise  employees  of  the  civil  govern- 
ment and  officers  and  soldiers  of  the  Army  of  the  United  States  are 
entitled  to  purchase  ice  at  the  same  price  of  one-half  cent  per  pound. 
It  has  not  been  deemed  advisable  to  enter  into  general  competition 
with  existing  industries  for  the  sale  of  ice  and  cold  storage  to  the 
general  public,  but  ice  has  been  furnished  to  such  people  as  cared  to 
go  to  the  plant  to  receive  it  at  1  cent  per  pound,  all  moneys  herein 
stated  l)eing  moneys  of  the  United  States. 

A  full  and  complete  report  of  Capt.  Leon  S.  Roudiez,  superintend- 
ent of  the  insular  cold  storage  and  ice  plant,  of  its  revenues  and 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  377 

expenditures  for  the  fiscal  year  ending  June  30, 1902,  is  hereto  annexed 
and  marked  "Exhibit  II." 

The  supplemental  report  of  Captain  Roudiez  is  also  annexed  and 
marked  "Exhibit  III,"  bringing  the  report  down  to  the  31st  day  of 
August,  1902.  From  these  exhibits  it  appears  that  the  total  revenues 
from  July  1,  1901,  to  August  31,  1902,  were  $365,689.45,  and  the  total 
expenditures  for  the  same  period  were  $218,739.70,  leaving  an  excess 
of  revenues  over  expenditures  of  $146,949.75. 

The  total  cost  of  the  construction  and  equipment  of  the  plant  down 
to  the  1st  day  of  September,  1902,  including  some  new  erections  now 
in  process  of  construction,  is  $689,336.38. 

In  addition  to  this  cost  the  following  elements  need  to  be  taken  into 
consideration :  First,  in  the  figures  above  given  nothing  is  included 
for  the  value  of  the  lot  upon  which  the  plant  stands.  The  lot  is  situ- 
ated upon  the  Pasig  River,  between  two  of  the  bridges  across  it,  and 
occupying  the  whole  space  between  the  two  bridges,  and  having  a 
long  frontage  upon  the  principal  street  and  a  long  water  frontage  so 
that  supplies  can  be  loaded  and  unloaded  directly  upon  and  from 
barges  and  lighters  upon  the  river.  Secondly,  the  materials  for  its  con- 
struction and  equipment  were  all  imported  free  of  duty,  and  much  of 
the  material  was  transported  upon  the  army  transports  without  charge 
for  freight.  It  is  considered  a  conservative  estimate  to  say  that  it 
would  be  impossible  for  a  private  individual  or  corporation  to  procure 
as  eligible  a  site  as  the  one  in  question  and  to  import  the  material 
necessary  for  the  construction  and  equipment,  paying  duties  and  cost 
of  transportation,  for  less  than  $1,000,000  in  United  States  currency. 

If  the  property  were  owned  by  a  private  individual  or  corporation 
it  would  doubtless  enter  into  competition  with  tlie  existing  establish- 
ments for  the  supply  of  ice  and  cold  storage  to  the  general  public, 
and  could  be  made  to  earn  a  larger  revenue  than  at  present  accrues. 
It  is  probable  that  with  the  reduction  of  the  United  States  Army  in 
the  Philippine  Islands  its  demand  for  cold  storage  may  decrease.  In 
such  case  it  may  be  necessary  to  increase  the  price  of  cold  storage  per 
cubic  foot,  the  present  price  having  been  fixed  upon  tlie  basis  of 
securing  a  known  and  certain  return  on  the  property.  Should  it  be 
deemed  advisable  by  the  War  Department,  the  plant  could  probably 
be  sold  at  a  satisfactory  price,  with  sufficient  safeguards  to  secure  ice 
and  cold  storage  for  the  Army  and  Navy  and  civil  employees  at  rea- 
sonable prices.  At  present  there  are  no  practical  difficulties  in  the 
way  of  the  existing  system  of  administration  by  tlie  Government.  The 
objections  to  it  are  mainly  theoretical,  on  the  ground  that  the  Gov- 
ernment is  engaging  in  a  business  that  ordinarily  is  conducted  by 
private  enterx)rise. 

CURRENCY. 

The  unsatisfactory  condition  of  the  currency  now  in  use  in  the  Phil- 
ippine Islands  is  universally  conceded  by  all  who  ai-e  familiar  with  the 
facts.  No  subject  connected  with  the  work  that  is  being  done  here  is 
more  pressing  for  Congressional  action  than  this.  The  industries  of 
tlie  islands  are  largely  paralyzed  by  the  uncertain  and  shifting  char- 
acter of  the  currency.  It  is  impossible  for  business  men  to  forecast 
success  or  failure  in  their  enteriirises  when  tliey  liave  no  stable  standard 
of  values,  lousiness  men  become  timid  in  their  transactions,  or  alto- 
gether refuse  to  make  investments,  when  they  have  and  can  have  no 
knowledge  as  to  the  value  of  the  returns  that  will  come  to  them.     The 


378  RErOKTS    OF    THE    CIVIL    GOVERNMENT 

uncertainty  lariroly  increases  tlie  rate  of  interest  on  money  loaned. 
The  man  wlio  one  year  ago  loaned  money  in  local  currency,  and  pay- 
able in  the  same  currency,  at  25  per  cent  interest,  would  receive  less 
than  5  per  cent  actual  interest  upon  his  money,  more  than  20  percent 
having  been  swallowed  up  in  depreciation  in  the  value  of  the  money 
that  would  be  returned  to  him.  Such  a  system  is  ruinous  to  both  the 
borrower  and  the  lender. 

Government  employees  complain  bittorlj^  that  their  salaries  are 
reduced  because  tliey  are  paid  in  local  currency,  and  its  value  lias 
been  steadily  depreciating  for  one  year.  The  insular  government  finds 
itself  facing  a  deficit  by  reason  of  the  shrinkage  in  the  purchasing 
l^ower  of  its  assets.  The  constant  depreciation  in  the  value  of  silver, 
and  consequently  in  the  value  of  local  currency  of  the  islands,  has 
been  one  of  the  greatest  hindrances  to  business  enterprises  and  to  the 
successful  administration  of  the  government,  and  it  is  impossible,  from 
any  information  available,  to  make  any  forecast  as  to  whetlier  silver 
in  the  markets  of  the  world  is  to  continue  to  depreciate  or  whether  the 
bottom  has  been  reached;  but  it  is  easy  to  forecast  the  results  that  in 
any  event  will  ensue  from  its  fluctuating  character,  which  undermines 
all  business  calculations. 

There  is  no  relief  except  in  a  stable  currency,  and  the  only  stable 
currency  possible  is  one  based  upon  a  gold  standard.  The  Commis- 
sion in  its  two  former  reports  urgently  recommended  the  establish- 
ment of  a  gold  standard  by  the  coinage  of  a  United  States-Filipino 
peso  of  the  value  of  a  half  dollar,  money  of  the  United  States,  con- 
taining a  small  percentage  less  silver  tlian  the  Mexican  dollar,  the 
percentage  being  such  that  its  intrinsic  value  would  not  at  any  time 
warrant  its  export  from  the  islands  for  bullion,  with  a  i)rovision  for 
its  convertibility  into  money  of  the  United  States  at  the  fixed  ratio 
of  two  Filipino  pesos  for  $1  in  money  of  the  United  States,  together 
with  convenient  subsidiary  and  minor  coins.  This  recommendation 
I  renew  and  respectfully  urge  as  the  best  solution  of  the  currency 
problem  here  existing. 

A  brief  summary  of  the  operation  upon  insular  finances  of  the 
depreciation  in  silver  in  ten  months  past  will  show  to  some  degree  the 
difficulties  to  which  the  government  has  been  subjected  from  this 
cause.  During  the  whole  of  the  calendar  year  1901  the  government 
undertook  to  maintain  a  uniform  ratio  for  official  purposes  of  12  of 
local  currency  for  $1  of  money  of  the  United  States.  But,  owing  to 
the  depreciation  of  silver  during  the  latter  portion  of  the  year  1901, 
when  Januar}'  1,  1902,  arrived  it  was  apparent  that  the  official  ratio 
could  no  longer  be  maintained  at  2  to  1,  the  revenues  upon  such  a 
basis  being  substantially  all  paid  in  local  currency,  because  it  was 
much  more  profitable  to  use  the  United  States  money  to  ijucohase 
local  currency  than  to  pay  the  duties  and  other  taxes  in  United  States 
money. 

Consequently,  on  January  1,  1902,  the  official  ratio  was  changed 
from  2  to  1  to  2.10  local  currency  to  $1  of  United  States  money,  the 
effort  being  to  establish  the  official  ratio  ui3on  the  same  basis  as  the 
commercial  ratio.  But  the  official  ratio  at  that  time,  by  orders 
received  from  the  Secretary  of  AVar,  was  fixed  for  each  quarter.  It 
soon  became  apparent,  however,  that  the  local  currency  had  been 
overvalued  in  this  adjustment,  and  that  the  depreciation  in  silver  was 
still  continuing.  Public  duties  in  consequence  were  i^aid  almost 
wholly  in  local  currency  at  the  official  ratio.  This  depreciation  con- 
tinued throughout  the  whole  of  the  quarter  ending  with  the  1st  day 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  379 

of  April,  when  the  ratio  was  again  changed  for  the  succeeding  quarter 
to  2.27  local  currency  to  $1  United  States  currency.  Prior  to  this 
time  Congress  had  in  the  act  entitled  "An  act  temporarily  to  provide 
revenues  for  the  Philippine  Islands,  and  for  other  purj)oses,"  approved 
March  8,  1902,  i)rovided  that  the  ratio  between  the  two  currencies 
should  be  fixed  once  a  quarter  by  proclamation  by  the  civil  governor, 
and  it  was  not  in  the  power  of  the  Commission  to  change  this  pro- 
vision. The  ratio  of  2.27,  as  it  j)roved,  largely  overvalued  local  cur- 
rency, taking  the  period  of  the  whole  quarter,  so  that  the  commercial 
value  of  local  currency  almost  immediately  ran  below  the  ofl&cial 
value.  On  the  1st  day  of  July,  1902,  Congress  passed  an  act  entitled 
"An  ac(3  temporarily  to  provide  for  the  administration  of  the  affairs 
of  the  civil  government  in  the  Philippine  Islands,  and  for  other  ijur- 
poses,"  wherein  it  was  provided,  among  other  things,  that  the  official 
ratio  between  the  two  currencies  might  be  fixed  b}^  proclamation  of 
the  governor  as  often  as  once  in  ten  days. 

The  same  causes  that  have  above  been  stated  continued  to  operate, 
and  on  July  7  the  ratio  was  changed  from  2.27  to  2.35  local  currency 
to  II  United  States  currency.  The  same  causes  continued  during  the 
quarter,  and  on  September  23  another  change  was  made  from  2.35  to 
2.40  local  currency  to  $1  of  money  of  the  United  States.  The  same* 
causes  continued  to  operate,  so  that  on  the  22d  day  of  October  it 
became  necessary  again  to  change  the  ratio  from  2.40  to  2.46  local 
currency  to  II  of  money  of  the  United  States. 

The  details  of  these  changes  and  their  effects  down  to  September 
30,  1902,  are  shown  in  the  auditor's  report  and  supplemental  state- 
ment annexed  hereto,  and  marked,  respectively,  "Exhibits  IV and  V." 

Each  one  of  the  changes  in  the  ratio  necessarily  operated  upon  the 
value  of  all  the  local  currency  in  the  treasury,  and  required  that  the 
ti'easurer  should  at  each  change  be  credited  with  the  net  amount  suf- 
ficient to  balance  the  loss  thus  occasioned.  Between  January  1, 1902, 
and  October  25,  1902,  the  aggregate  of  those  losses  was  1950, 750. 37-|-, 
measured  in  gold  dollars,  every  dollar  of  which  is,  not  a  book  loss, 
but  an  actual  loss,  to  the  treasurj^,  as  complete  as  though  the  money 
had  been  sunk  into  the  bottom  of  the  ocean.  The  receipts  having 
nearly  all  been  in  local  currency,  because  of  its  overvaluation,  dur- 
ing the  whole  of  the  ten  months  referred  to,  each  change  marked  a 
diminution  in  the  value  of  the  currency  in  the  treasury.  Local  cur- 
rency was  necessarily  used  for  the  purchase  of  commodities  and  pay- 
ment of  salaries  and  expenses  by  the  insular  government — its  capacity 
to  purchase  such  commodities,  to  pay  such  salaries  and  expenses,  dur- 
ing that  period,  unavoidably  diminished  by  the  great  sum  above 
stated.  If  the  currency  had  been  stable,  upon  the  basis  recommeiuled 
by  the  Commission,  all  this  loss  would  have  been  saved,  there  would 
have  been  no  danger  of  a  deficit,  and  much  needed  i)ublic  improve- 
ments, to  the  value  of  nearly  $1,000,000,  could  have  been  made  which 
now  can  not  be  undertaken. 

Tliere  are  other  great  embarrassments  in  a  fluctuating  currency  as 
imposed  upon  the  go\ernment,  asid(^  from  the  actual  loss  above  stated. 
It  is  impossible  to  communicate  tlie  changes  of  ratio  to  the  remote 
points  of  the  islands  immediately  upon  making  tlio  changes;  it 
requires  weeks  for  tlu^  information  to  reach  remote  points  where 
communication  is  uncertain  and  infrequent;  and  necessarily  the 
receiving  and  disbursing  ofiiccsrs  are  proceeding,  till  they  receive 
the  information,  upon  a  false  ])asis,  and  jncet  wit  li  great  trouble  in  the 
settlement  of  their  accounts  with  the  auditor.     Likewise,  there  is  a 


380  REPORTS    OF    THE    CIVIL    GOVERNMENT 

livoat  opportunity  on  tlio  part  of  all  roceivins?  and  disbursing  officers 
for  f i-aud  of  such  a  character  as  to  be  ahnost  impossible  to  discover. 
At  nearly  all  times  it  is  more  profitable  to  pay  in  one  currency  rather 
than  in  the  other,  because  a  receiving  officer  wlio  receives  paj'ment 
in  United  States  money,  wlien  that  money  is  more  valuable  than  local 
currency  at  the  official  ratio,  can  sell  the  money  of  the  United  States 
and  receive  local  currency  in  exchange  therefor  at  the  commercial 
rate,  and  i^ocket  the  difference  between  the  commercial  ratio  and 
tlie  official  ratio,  making  the  entries  upon  his  books  to  appear  tluit 
he  received  payments  in  local  currency;  and  the  same  thing  applies 
to  all  disbursing  officers.  If,  on  the  other  hand,  it  is  more  prolitable 
to  make  jjaj'ment  in  gold,  local  currency  can  be  readily  exchanged 
■with  money  changers  for  gold,  or  for  money  of  the  United  States, 
the  difference  in  that  event  being  provided  for  by  the  receiving  or 
disbursing  officer  making  entries  to  correspond  with  the  financial 
transactions  instead  of  the  actual  receipt  or  disbursement.  Receiv- 
ing and  disbursing  officers  ought  not  to  be  exposed  to  such  tempta- 
tions, nor  ought  the  government  to  be  exposed  to  the  consequent 
loss. 

But  the  dissatisfaction  on  the  part  of  the  civil  employees  on  account 
of  tlie  fluctuating  value  in  the  currency  in  which  they  have  been  paid 
has  been  intense.  It  was  not  in  the  power  of  the  Commission  or  of  any 
other  authority  to  meet  those  difficulties.  If  the  receipts  were  in  local 
currency,  as  they  have  very  largely  been  during  the  past  ten  months, 
the  disbursements  must  necessarily  be  in  the  same  currency. 

But  the  difficulties  of  accounting  are  very  great  in  the  case  of  an 
almost  continuous  fluctuation  of  the  currency.  The  auditor  states 
that— 

At  one  time  disbnrsing  officers  were  handling  two  kinds  of  currency  involving, 
in  effect,  five  standards  of  value.  They  were  expending  appropriations  disbnrsa- 
ble  in  local  currency  at  the  ratio  of  3  to  1;  half-and-half  appropriations,  or  api^ro- 
priations  disbursable  one-half  in  United  States  currency  and  one-half  in  local 
currency  at  the  ratio  of  2  to  1 ;  local  currency  appropriations  disbiirsable  at  2.10  to 
1.  and  appropriations  disbursable  in  local  currency  at  2.27  to  1.  The  difficulties 
arising  under  such  a  complicated  system  were  ahnost  insuperable,  especially  as 
all  accounts  were  required  to  be  stated  to  the  War  Department  expressed  in 
United  States  currency.  The  debit  and  credit  differences  to  be  adjusted  were 
so  numerous  as  greatly  to  impede  the  progress  of  the  accounting  work. 

The  foregoing  is  an  extract  from  the  report  of  the  auditor  for  the 
fiscal  year  ending  June  30,  1902.  Since  that  date  there  have  been 
more  changes  in  the  ratio,  still  further  complicating  the  accounts  in 
the  auditor's  office.  The  system  is  intolerable.  No  auditor  in  the 
United  States  has  ever  had  to  deal  with  such  problems  and  difficulties. 
It  is  impracticable  for  the  auditor,  thoroughly  efficient  as  he  is  and 
with  an  able  staff,  to  keep  abreast  of  his  work  under  such  conditions. 

The  sj'stem  of  coinage  which  the  Commission  has  proposed  is  in 
substance  that  which  prevails  over  all  India  and  throughout  the 
Emjiire  of  Japan.  Under  the  proposed  system  only  such  an  amount 
of  local  currency  would  be  issued  as  experience  demonstrated,  from 
time  to  time,  was  necessary.  The  United  States  gold  dollar  or  the 
theoretical  gold  peso  of  the  value  of  one-half  dollar  being  the  unit,  all 
minor  and  subsidiary  coins  would  bo  fractional  j^arts  of  such  peso. 
The  actual  i)eso  in  current  use  would  be  a  silver  one  nearly  the  size 
of  the  Mexican  dollar  and  such  as  the  people  are  familiar  with,  and 
its  parity  would  be  maintained  by  the  methods  recommended  in  the 
Commission's  last  former  report  and  by  a  restriction  of  the  amount 
issued.     In  Japan  the  theoretical  unit  is  a  gold  yen  of  the  value  of 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  381 

practieallj'  one-half  dollar  gold.  The  ordinary  currency  of  the  conn- 
try,  aside  from  jiaper  monej",  is  a  silver  yen  and  the  fractional  parts 
thereof,  all  redeemable  in  gold,  and  the  value  of  a  silver  yen  and  the 
fractional  parts  is  preserved  at  a  uniform  rate  by  issuing  only  such 
an  amount  thereof  as  the  needs  of  the  countr}^  demand,  a  system  in 
principle  precisely  like  that  recommended  for  the  Philippines. 

In  India  the  steady  depreciation  in  the  value  of  silver  graduallj^ 
depreciated  the  value  of  the  rupee,  the  general  coin  of  the  country, 
until  exchange  had  become  involved  in  inextricable  confusion  and 
great  loss  resulted.  In  1893  the  government  of  India  withdrew  the 
power  of  individuals  to  claim  free  coinage  of  silver,  reserving  to  the 
government  the  right  to  coin  rupees,  and  issued  notice  that  at  the 
mints  gold  coin  or  bullion  would  be  received  in  exchange  for  govern- 
ment rupees,  and  that  at  the  treasuries  sovereigns  and  half  sovereigns 
would  be  received  in  paj^ment  of  sums  due  to  the  government  at  the 
rate  of  15  rupees  to  the  sovereign,  or  16  pence  to  the  rupee.  The 
immediate  effect  of  this  action  was  to  cause  the  rate  of  exchange  for 
rupees  to  run  up  from  14f|  pence  to  16  pence,  but  in  spite  of  this 
action  the  value  of  the  rupee  subsequently  fell  to  12^1  pence,  but 
subsequently,  with  the  demands  of  increasing  business  and  no  increase 
in  the  coinage  of  rupees,  the  rate  of  exchange  gradually  rose,  until  in 
1897  the  rate  of  16  pence  was  reached.  From  that  time  to  the  present 
the  rate  has  remained  at  that  point,  with  slight  changes  due  to  com- 
mercial reasons.  The  present  commercial  value  of  the  rupee,  as  bul- 
lion, is  very  much  less  than  16  pence,  but  it  remains,  and  has  remained 
for  five  years,  at  a  fixed  value  sustaining  a  definite  ratio  to  the  pound 
sterling  and  subsidiary  coins  of  Great  Britain,  because  of  the  restric- 
tion of  the  coinage.  From  time  to  time,  if  the  rupee  became  scarce 
and  indicated  a  tendency  to  have  a  greater  exchange  value  than  16 
pence,  additional  amounts  were  coined  by  the  government  itself,  care 
being  always  taken  to  issue  no  more  than  the  necessities  of  commerce 
required  at  such  time  to  maintain  the  parity  of  the  coins.  On  July 
7,  1899,  the  committee,  appointed  by  the  government  of  India,  for 
the  purpose  of  investigation  and  recommendation,  reported  unani- 
mously in  favor  of  a  gold  standard,  and  all  but  three  recommended 
that  tiie  rate  of  16  pence  to  the  rupee  be  adopted;  but  on  September 
15,  1899,  an  act  was  passed  making  sovereigns  and  half  sovereigns  a 
legal  tender  at  a  fixed  rate  in  rupees.  While  the  gold  circulation  of 
India  is  not  large  relatively,  the  government  has  estal)lished  a  gold 
basis  for  the  currency  and  maintained  it  without  sei-ious  difiiculty, 
and  has  maintained  a  fixed  rate  of  exchange. 

Prof.  Jeremiah  W.  Jenks,  professor  of  political  economy  in  Cornell 
University,  at  Itliaca,  N.  Y.,  has  during  the  past  year  made  an  exten- 
sive investigation  into  economic  questions  in  the  English  and  Dutch 
colonies  in  the  Orient  by  personal  examination  and  investigation  of 
records,  studv  of  laws,  ordinances,  decrees,  and  interviews  witli  men 
in  authority  and  eminent  in  business  transactions  in  those  regions. 
His  conclusions  upon  the  subject  of  a  fluctuating  silver  currency  as 
compai-ed  with  a  fixed  standard  are  stated  at  considerable  length  and 
clearness  in  a  report  which  he  has  furnished  to  the  Commission,  a 
aummai-y  of  which  is  as  follows: 

1  It  is  nerff'ctly  possible  in  oriental  dependencies  to  maintain  a  fixed  rate  of 
exchange  between  gold  and  silver  without  the  necessity  of  bnnging  gold  to  any 
great  extent  into  cirrulation.  .  i     u 

2  In  countries  where  imported  cooly  labor  is  of  great  importance,  and  where 
such  cooly  labor  is  mostly  Chinese,  it  is  probable  that  better  terms,  i.  e.,  a  lower 

23181—04 25 


382  REPOKTS    OF    THE    CIVIL    GOVERNMENT 

percentage  of  cost  in  wages,  can  be  made  by  using  the  silver  standard  than  by 
nsing  the  gold  standard. 

8.  Wlion  silver  is  declining  in  valne  as  compared  ■with  gold,  a  silver  standard 
beyond  doubt  affords  a  stimulus  to  the  pi-odiiction  of  goods  for  export,  especially 
if  the  lal)orers  employed  arc  of  the  ignorant  cooly  type,  the  prices  f)f  whose  pur- 
chases are  largely  customary.  In  the  case  of  a  newly  develo])ing  country,  where 
cooly  labor  is  demanded,  this  stimulus  may  iirovc  for  some  time,  at  least,  of 
advantage,  without  disadvantage  enough  to  offset. 

4.  The  advantage  to  the  producers  of  (>xi)ort  goods  are  offset  in  part,  doubtless, 
by  losses  of  wage-earners,  in  part  by  losses  of  consumers  of  imported  goods,  but 
this  influence  on  the  distribution  of  wealth  may  (juite  conceivably  for  a  consider- 
able time  be  beneficial  to  the  country  as  a  whole. 

5.  On  the  other  hand,  conditions  may  be  siich  that  this  change  in  the  distribu- 
tion of  wealth  may  be  a  disadvantage,  and  each  country  needs  to  consider  what 
the  effect  of  the  change  in  the  distribution  of  wealth  will  be  before  settling  its 
policy. 

().  in  the  long  run,  it  is  probable  that  under  any  standard  these  changes  in  dis- 
tribution will  1)0  gradxially  fixed,  so  that  prodiicers  in  a  country  with  a  gold  stand- 
ard will  not  continually  be  placed  at  any  disadvantage  regarding  wages  and  other 
costs  of  production  as  compared  with  those  in  the  silver-standard  countries. 

7.  The  silver  standard  under  present  circumstances,  and  probably  for  a  long 
time  to  come,  brings  an  element  of  uncertainty  and  speculation  into  business, 
which,  speaking  generally,  is  to  be  considered  a  decided  disadvantage. 

(S.  It  is  probable  that  in  a  country  whose  business  is  largely  with  gold-standard 
coxmtries,  the  advantages  of  a  fixed  rate  of  exchange  on  a  gold  basis  will  more 
than  offset  t'le  advantages  which  might  come  from  a  silver  basis,  unless  the  most 
impoi-taut  factor  in  connection  with  production  is  the  introduction  of  cheap  cooly 
labor.  Even  in  the  latter  case,  if  there  is  a  desire  to  develop  especially  the  trade 
with  gold  countries,  the  fixed  rate  of  exchange  with  gold  is  to  be  preferred. 

9  The  flow  of  capital  for  investment  in  a  countr^^  is  determined  mainly  by  the 
outlook  for  profits.  Unless  the  chances  are  very  good  an  added  element  of  specu- 
lation in  business  tends  to  check  investment.  Unless,  therefore,  conditions  of 
labor  or  other  special  conditions  are  such  as  to  more  than  offset  the  risks  of  a 
fluctuating  rate  of  exchange,  a  fixed  rate  on  a  gold  basis  will  encourage  the  invest- 
ment of  capital. 

10.  If  the  gold  standard,  together  with  a  silver  currency,  is  to  be  adopted  in  any 
of  these  oriental  countries,  the  disadvantage  which  there  may  be  in  connection 
vsith  it  will  be  much  less  if  the  fixed  rate  of  exchange  be  made  as  near  as  possible 
to  the  bullion  rates,  with  the  silver  coin  as  a  token,  of  light  enough  weight  so  that 
there  will  be  slight  danger  of  its  being  e;:ported  if  a  rise  occurs  in  the  value  of 
silver  bullion,  and  at  the  same  time  with  the  coin  not  too  light  as  to  afford  undue 
temptation  to  counterfeiting.  A  coin  15  per  cent  or  20  per  cent  below  the  fixed 
exchange  value  would  probably  be  light  enoiTgh. 

11.  A  permanent  rate  of  exchange  can  be  most  easily  maintained  by  a  provision 
for  the  government  to  sell  exchange  at  fixed  rates  between  the  home  government 
and  the  dependency.  Such  rates  should  be  high  enough  not  to  interfere  with  ordi- 
nary business,  but  low  enough  to  prevent  extortionate  business  rates  even  tempo- 
rarily in  the  dependency  itself.  A  rea.sonable  gold  reserve  in  the  dependency 
itself,  to  be  used  wdien  large  quantities  are  needed  for  export,  may  well  be  kept  in 
conjunction  with  the  aboA'e  plan. 

12.  Whatever  the  standard  of  value,  the  efficiency  of  the  currency  system  is 
greatly  increased  by  the  use  of  paper.  An  elastic  bank-note  system,  with  notes 
current  throughout  the  country,  has  proved  best. 

It  will  be  observed  that  Professor  Jenks  finds  it  entirely  feasible 
in  such  regions  to  maintain  a  fixed  rate  of  exchange  between  gold  and 
silver  witliout  the  necessit}'  of  bringing  gold,  to  a  large  extent,  into 
circulation,  and  that  the  only  regions  where  silver  coin  without  a 
fixed  value  is  advantageous  are  tliose  wherein  a  great  preponderance 
of  the  labor  is  cooly  labor,  mainly  Chinese,  largely  ignorant,  and 
such  that  they  can  be  compelled  to  receive  their  pay  in  tlie  depre- 
ciated currenc}^  and  thereby  furnish  a  greater  profit  to  their  employ- 
ers and  to  producers.  In  nearly  all  other  respects  a  fixed  currency 
is  largely  for  the  advantage  of  the  inhabitants  of  those  countries;  but 
in  the  Philippine  Islands  cooly  labor  is  not  available.  The  Chinese- 
excluvsion  act  recently  pas&ed  by  Congress  ren(^ers  that  class  of  labor 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  383 

unavailable  here,  so  that  all  the  evils  of  a  fluctuating  currency  exist 
here,  with  none  of  the  advantages,  if  they  exist  in  an^^  case. 

It  has  been  suggested  that  It  would  be  unjust  to  deprive  the  Fili- 
pino people  of  the  silver  coin  to  which  they  have  long  been  accus- 
tomed, and  that  an  American  free-silver  Filipino  coinage  might  be 
established  that  will  give  to  them  the  same  kind  of  coin  that  they 
have  long  been  accustomed  to,  but  of  much  better  workmanship, 
which  coin,  it  is  said,  will  ultimately  drive  out  the  ruder  Mexican 
coin.  But  it  would  manifest^  be  no  hardship  upon  the  Filipino  peo- 
\)\e  to  deprive  them  of  a  fluctuating  currency  from  which  they  all, 
without  exception,  experience  a  hardship.  We  do  not  know  any 
man  or  class  of  men,  of  any  nationality  or  rank,  in  these  islands,  who 
wish  for  a  continuance  either  of  the  present  fluctuating  silver  coin, 
or  of  an  American  fluctuating  silver  coin,  with  the  possible  exception 
of  the  money  changers,  who,  of  course,  mp.ke  a  profit  from  every 
fluctuation  of  value,  and  of  a  very  few  employers  of  laborers  who  find 
it  to  their  advantage  to  ])ny  their  laborers  in  a  cheaper  currency. 

It  surely  is  no  hardship  to  deprive  the  people  of  a  kind  of  currency 
that  they  do  not  wish  for  and  that  is  ruinous  to  them,  and  to  substi- 
tute therefor  one  similar  in  appearance  to  that  to  which  they  have  long 
been  accustomed  and  which  has  a  fixed  and  definite  value.  It  is  believed 
that  these  are  the  sentiments  not  only  of  the  Commission,  but  of 
the  entire  bod3'  of  the  people  who  have  given  this  subject  an}'  thought, 
of  every  nationality  in  the  islands — native,  American,  and  foreign. 
If  it  be  true  that  such  a  sj^stem  of  coinage  would  operate  to  the  mate- 
rial loss  or  to  the  permanent  detriment  of  the  people  of  these  islands, 
it  is  confidently  believed  that  the  Congress  of  the  United  States  will 
not  be  willing  to  impose  upon  this  countrj^  a  financial  system  which 
will  operate  to  retard  or  ruin  enterprise  and  commercial  prosperity. 

To  summarize,  it  may  be  stated  that  the  evils  of  the  existing  system 
are: 

1.  The  fluctuating  currency  hampers  business  enterprises  and  ren- 
ders investments  therein  uncertain  and  dangerous. 

2.  It  raises  the  rate  of  interest  decidedly,  because  the  lender  must 
charge  a  rate  of  interest,  where  the  loan  is  made  in  local  currency 
and  to  be  repaid  in  local  currency,  sufficient  to  cover  the  possible  and 
probable  loss  he  may  sustain  in  his  principal  when  it  is  returned  in 
the  same  currency  with  a  lower  value  therefor. 

3.  It  demoralizes  the  whole  civil  service  of  the  government,  and 
creates  intense  dissatisfaction  on  the  pai-t  of  all  civil  employees. 

4.  It  results  in  enormous  losses  to  the  insular  treasury. 

5.  It  opens  great  doors  for  fraud  on  the  part  of  receiving  and  dis- 
bursing officers  of  the  government. 

6.  It  renders  accurate  accounting  exceedingly  difficult  and  laborious 
and  well-nigh  impossible. 

7.  It  continues  a  system  that  is  odious  to  tlie  people  and  to  the 
business  men  of  these  islands. 

Kveiy  one  of  these  evils  can  be  remedied  by  tlie  scheme  heretofore 
recommended  by  the  Commission.  It  is  very  i-espectfully  submitted 
that  tlie  people  of  these  islands  ai'c  entitled  to  as  good  a  money  and 
as  stable  a  cui-rency  as  the  peoph^  of  the  United  States  enjoy,  and 
tliat  it  would  be  an  unjust  discrimiiuition  against  the  p(!ople  liere  to 
continue  or  perpetuate  in  any  form  a  system  of  inferior  currency 
whicli  they  do  not  wisli  for. 

In  the  act  of  Congress,  entitled  "An  act  temporarily  to  provide  for 
the  administration  of  the  ciyil  government  in  the  Philippine  Islands, 


384  REPORTS    OF    THE    CIVIL    GOVERNMENT 

and  for  other  purposes,"  passed  July  1,  1002,  provision  is  made 
authorizinrj  tho  coinage  of  subsidiary  and  minor  coins  for  use  in  the 
Philippine  Islands.  Inasmuch  as  no  standard  unit  of  which  such 
coins  sliall  be  a  fractional  part  is  provided  by  Congress,  it  has  been 
deemed  inipracticable  by  the  Commission  to  proceed  with  such  coin- 
age. A  portion  of  section  78  of  the  act  above  referred  to  provides 
that  "the  subsidiary  silver  coins  authorized  by  this  section  sliall  be 
legal  tender  in  said'  islands  to  the  amount  of  ten  dollai-s,"  and  a  por- 
tion of  section  7i)  provides  that  "such  minor  coins  shall  be  legal 
tender  in  said  islands  for  amounts  not  exceeding  one  dollar." 

It  is  not  apparent  as  to  whether  the  coins  therein  named  are  to  be 
made  legal  tender  for  dollars  payable  in  local  currency,  such  as  at 
present  exist,  or  in  a  new  local  currency  such  as  the  Commission  have 
recommended,  or  in  money  of  the  United  States,  inasmuch  as  no  unit 
of  value  is  established  by  the  act.  It  i;  apparent  that  the  subsidiary 
and  minor  coins  referred  to  are  to  be  fractional  parts  of  some  unit. 
Without  knowing  of  what  unit  they  are  fractional  parts,  it  would  be 
very  difficult  to  provide  for  their  circulation.  If  such  coins  should 
be  immediately  coined  and  issued,  and  a  subsequent  act  of  Congress 
should  make  the  unit  to  be  the  United  States-Filipino  peso  of  50  cents 
gold  value,  as  reconnnended  by  the  C^ommission,  the  proposed  coins 
would  have  more  than  20  per  cent  greater  value  than  if  legislation  by 
Congress  should  cause  them  to  he  only  fractional  parts  of  a  free  silver 
peso  coined  under  free-coinage  principles,  or  of  the  Mexican  peso  now 
in  circulation  in  the  islands.  With  such  uncertainty  as  to  the  status 
of  the  subsidiary  and  minor  coins,  it  would  be  difficult  to  maintain 
them  in  general  circulation ;  the  banks  would  decline  to  pay  them  out, 
and  would  retain  them  as  fast  as  they  would  come  into  their  posses- 
sion, in  view  of  the  fact  that,  it  the  free-coinage  system  or  the  con- 
tinuance of  the  Mexican  system  should  ultimately  prevail,  they  would 
lose  nothing  by  retaining  them  in  their  vaults,  and  that,  if  the  sys- 
tem heretofore  recommended  by  the  Commission  should  be  adopted, 
these  coins  would  thereby  have  fixed  and  definite  values,  namely,  as 
fractional  parts  of  a  peso  worth  50  cents,  and  the  banks  would  thus 
have  made  a  profit  of  more  than  20  per  cent  in  the  value  of  the  coins 
so  hoarded  by  the  simple  process  of  retaining  them  from  circulation 
until  the  fixed  unit  of  value  should  have  been  adopted.  It  was  learned 
that  the  banks  Avere  taking  this  view  of  the  situation  and  had  indi- 
cated a  willingness  to  take  a  large  amount  of  the  new  subsidiary  and 
minor  coins  should  they  be  issued,  which  manifestly  they  could  well 
afford  to  do  under  such  circumstances.  In  view  of  all  these  facts,  on 
the  ;30th  day  of  September,  1902,  the  Commission  resolved: 

That  no  action  should  be  taken  for  the  coinage  of  the  minor  and  subsidiary 
coins  referred  to  until  a  unit  of  value  shall  have  been  fixed  by  act  of  Congress  or 
otherwise,  the  legislation  of  Congress  referred  to  being,  in  the  opinion  of  the  Com- 
mission, permissive  and  not  mandatory. 

Before  leaving  this  subject  it  should  be  remarked  that  under  the 
operation  of  the  influences  above  stated  the  insular  revenues  from 
October  or  November,  1901,  down  to  July  1, 1902,  were  nearly  all  paid 
in  local  currency,  while  many  of  the  obligations  of  the  government 
had  to  be  met  in  gold.  The  consequence  was  that  the  supply  of  gold 
in  the  insular  ti-easury  became  gradually  depleted  until  it  had  less 
than  81,000,000  of  gold,  or  money  of  the  United  States,  in  its  vaults. 
By  changing  the  ratio  as  above  stated,  after  the  passage  of  the  act  of 
Congress  authorizing  such  changes  to  be  made,  as  often  as  every  ten 
days,  the  ratio  has  been  kept  such  that  it  was  not  longer  to  the 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  385 

special  advantage  of  parties  making  payments  to  make  them  wholly 
in  local  enrrencV,  and  by  continuing  to  make  the  government  dis- 
bursements mainly  in  local  currency  the  amount  of  money  of  the 
United  States  in  the  treasury  on  the  -ith  day  of  October,  1902,  was 
$2,»33-t,535.185. 

BANKS  AND  BANKING. 

In  the  last  report  of  the  Commission,  under  date  October  15,  1901, 
the  status  of  the  banks  then  existing  in  the  islands  and  of  the  paper 
currency  in  circulation  was  detailed.  There  having  been  no  addi- 
tional legislation  by  Congress  authorizing  the  establishment  of  banks 
in  the  Philippine  Islands,  with  power  to  issue  bank  notes,  no  action 
in  that  direction  has  been  taken  l)y  the  Commission.  The  report 
above  referred  to  contains  the  recommendations  of  the  Commission  in 
regard  to  the  establishment  of  a  banking  system  for  the  islands. 
Those  recommendations  I  renew,  calling  special  attention  to  the 
burden  that  is  now  imposed  upon  commerce  by  the  absence  of  a  suffi- 
cient paper  curi-ency.  Paper  money  is  used  but  very  little  in  the 
ordinarv  operations  of  commerce,  because  it  is  not  available.  The 
mechankal  difficulties  in  the  way  of  using  tlie  present  bulky  coins  are 
very  great.  The  counting  of  money  imposes  great  burdens  upon  all 
receiving  and  disbursing  officers  and  upon  the  treasury.  The  han- 
dling of  large  sums  involves  very  considerable  expense,  and  is  a  serious 
handi(;ap  upon  business  and  governmental  transactions.  It  is  urgently 
recommended  that  the  system  of  banking  which  was  before  recom- 
mended be  enacted  into  legislation  by  the  Congress  of  the  United 
States,  or  that  another  sysfem,  such  as  shall  commend  itself  to  the 
judgment  of  that  body,  be  provided,  or  that  legislation  be  enacted 
specifically  authorizing  the  Commission  to  establish  such  a  system, 
with  a  right  to  authorize  the  issue  of  bank  notes, 
y  Since  tThe  date  of  the  last  report  of  the  Commission  two  powerful 
American  banking  institutions  have  opened  offices  for  a  general  bank- 
ing l)usiness  in  the  Philippine  Islands— the  International  Banking 
Corporation,  of  Connecticut,  and  Guaranty  Trust  Company,  of  New 
York. 

Both  of  these  institutions  have  been  made  authorized  depositories 
for  public  funds  of  the  United  States  and  of  the  government  of  the 
Philippine  Islands  in  the  archipelago.  They  have  introduced  a  new 
element  of  competition,  so  that  exchange,  in  the  large  sense,  and 
exchange  of  currencies  in  a  smaller  sense,  can  be  had  at  a  more  rea- 
sonable rate  than  formerly  prevailed.  The  funds  belonging  to  the 
insular  government  have  been  so  distributed  that  each  of  the  author- 
ized depositories  has  about  the  same  amount  as  the  other,  and  in  the 
insular  treasury  sometliing  over  one  and  a  half  million  in  local  cur- 
rency and  something  over  $100,000  in  money  of  the  United  States  are 
now  stored  in  the  vaults. 

Two  small  American  banks  have  been  started  in  the  city  ot  Manila 
during  the  past  year,  with  inadequate  capital  and  an  uncertain  status 
as  to  the  legal  capacity  to  transact  a  banking  l)usiiiess.  One  of  them 
has  already  been  closed,  except  as  to  its  savings  department,  and  the 
other  has  l)een  sul)jected  to  frequent  examinations,  and  is  now  making 
strenuous  efforts  ti)  collect  some  doubtful  notes  which  it  has  received 
foi-  loans  Its  l)usiness  is  small.  The  opinion  is  still  entertained  that 
})anl<s  wilh  small  capital  have  little  field  for  usefulness  in  these 
islands. 


386  REPORTS   OF   THE    CIVIL    GOVERNMENT 

GENERAL  CONDITION   OF  THE  TREASURY. 

Tlio  aceoniits  of  t1u>  troasniy  of  Ihc  Philippine  Archipelago  have 
been  well  kept,  and  the  office  luisbeen  well  administered.  All  receipts 
and  disbnrsenieiits  have  been  thoroughly  audited  by  the  auditor  of 
the  Piiilippiue  Archipelago.  Both  the  treasurer  and  the  auditor  are 
to  be  conunended  for  their  efficiency  and  fidelity. 

The  amount  in  the  treasury  at  the  beginning  of  the  fiscal  year  July 
1,  1901,  stated  in  money  of  the  United  States,  local  currency  being 
reduced  to  money  of  the  United  States  at  the  ratio  of  2  to  1,  was 
$6,222,i)12.78.  The  amount  in  the  treasury  at  the  end  of  the  fiscal 
year  June  30,  1902,  local  currency  being  reduced  to  money  of  the 
United  States  at  the  ratio  then  prevailing,  $1  of  money  of  the  United 
States  to  2.27  local  currency,  was  |5,995,00G.49i. 

The  sum  available  for  appropriation  on  July  1, 1901,  was  $3,919,420, 
money  of  the  United  States,  local  currency  being  reduced  to  money 
of  the  United  States  on  the  basis  of  2  to  1,  exclusive  of  certain  Span- 
ish and  insurgent  seized  funds  and  special  deposits. 

The  sum  available  for  appropriations  on  June  30,  1902,  was 
$3,999,426.47,  money  of  the  United  States,  local  currency  being  reduced 
to  money  of  the  United  States  on  the  basis  of  2.27  to  1. 

The  total  receipts  and  disbursements  of  the  insiilar  government  dur- 
ing the  fiscal  year  ending  June  30,  1902,  were  as  follows: 

Receipts. 

Department  of  finance  and  justice $9, 022, 855. 04i 

Department  of  commerce  and  police 239, 291. 92 

Department  of  the  interior 118,711.41 

Department  of  public  instruction 3, 777. 29 

All  other  sources,  including  the  city  of  Manila 1, 253, 512. 89 

Making  an  aggregate  of  receipts ' 10, 638, 148. 56 

Disbursements. 

Philippine  Commission 180, 183. 57 

Executive  bureau 105, 324. 23 

Department  of  finance  and  justice 1, 188, 244. 88 

Department  of  commerce  and  police -  1 ,  689, 344. 70 

Depai'tment  of  the  interior 832, 216. 37 

Department  of  piiblic  instniction 1 ,  591 ,  826. 31 

Unassigned  bureaus,  offices,  etc 339, 384. 13 

By  military  officers  for  civil  purposes 1  >  110, 404. 23i 

Philippines  disbursing  agent  at  Washington,  not  elsewhere  indi- 
cated   7,875.64 

Miscellaneous  payments  by  settlement  warrants 31, 655. 78 

City  of  Manila,  for  period  prior  to  August  7,  1901 210, 637. 92 

City  of  Manila  (charter)  after  Aiigust  7 1, 533, 706. 64 

Refimds  to  provinces: 

Internal  revenue 245, 554. 08 

Forestry 78,925.27i 

Special  refunds : 4, 010. 63 

Total  disbursements  to  June  30,  1902 9, 149, 244. 39 

Total  receipts 10, 638, 148. 56 

Total  disbursements  to  June  30 9, 149, 244. 39 

Excess  of  receipts  over  disbursements. - 1, 488, 904. 17 

Of  the  total  receipts,  18,550,758.49  came  from  customs  duties.     The 
general  government,  in  fact,  is  supported  mainly  from  that  source. 
The  excess  of  receipts  over  disbursements  arises  from  the  fa(;t  that 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  387 

the  fiscal  year  1902  includes  all  that  period  from  July  1  to  Decem- 
ber 31,  1901,  when  many  of  the  bureaus  had  not  been  organized,  and 
many  of  the  disbursements  that  subsequentl}^  became  necessary  were 
not  required. 

During  the  second  half  of  the  fiscal  year  1902  the  disbursements 
exceeded  the  receipts.  During  that  period  the  total  receipts  were 
$6,777,339.85,  of  which  $1,310,191.74:  were  repayments  from  former 
appropi'iations  not  fully  disbursed;  and  refundable  duties  to  the 
amount  of  $64,498.13,  maliing  a  total  deduction  of  $1,374,689.87; 
leaving  a  net  revenue  for  the  period  of  $5,402,649.98,  United  States 
currency.  Disbursements,  $6,114,932.34,  leaving  an  apparent  defi- 
ciency of  $712,282.36. 

Many  of  the  disbursements  during  the  second  half  of  the  fiscal  year 
1902  were  in  the  nature  of  permanent  investments,  as  for  the  purchase 
of  vessels  for  the  bureau  of  coastguard  and  transportation,  the  com- 
pletion of  payments  for  the  construction  of  the  insular  cold  storage 
and  ice  plant,  purchase  of  equipment  and  arms  for  the  insular  con- 
stabulary, the  harbor  improvement  of  the  port  of  Manila,  construc- 
tion of  the  Benguet  road,  building  and  equipping  printing  plant,  and 
other  works  of  a  general  character.  The  organization,  equipment, 
and  maintenance  of  the  insular  constabulary  was  a  very  large  expense 
mainly  during  the  latter  part  of  the  fiscal  year.  The  cholera  epidemic 
has  diminished  the  revenues  bj^  decreasing  the  imports  and  disturb- 
ing the  public  conditions,  and  has  increased  expenditures  b}^  nearly 
$500,000,  money  of  the  United  States,  in  the  attem^Dt  to  prevent  the 
spread  of  the  pestilence. 

The  details  of  the  sources  from  which  all  receipts  came  and  the  pur- 
poses for  which  all  expenditures  have  been  incurred  are  shown  in  the 
"  Combined  statement  of  the  receipts  and  disbursements  for  the  Phil- 
ippine Archipelago  for  the  fiscal  j^ear  1902,"  prepared  by  the  auditor, 
hereto  annexed  and  marked  "Exhibit  IV." 

It  is  believed  that  the  insular  revenues  for  the  fiscal  year  1903  would 
be  adequate  to  meet  all  disbursements  for  the  purposes  of  administra- 
tion and  for  the  expenditure  of  considerable  sums  foi-  improvements 
and  extraordinary  expenses  were  it  not  for  the  great  depreciation  that 
has  existed  in  the  value  of  the  silver  coin  held  hy  the  treasury  as 
above  stated.  This  depreciation  will  cause  a  deficit  which  must  be 
met  from  the  surplus  heretofore  accumulated  in  the  treasury.  The 
probable  amount  of  the  deficit  will  be  apparent  from  the  budget,  as 
hereinafter  stated.  The  available  assets  will  be  to  some  extent 
increased  by  the  action  of  Congress  in  dedicating  to  insular  purposes 
the  Spanish  seized  funds  and  seized  insurgent  funds  that  have  been 
kept  as  special  funds  in  the  treasury  heretofore. 

The  available  assets,  however,  will  not  be  increased  to  any  appre- 
ciable extent  by  the  provisions  that  customs  duties  collected  in  the 
United  States  on  imports  from  the  Philippine  Islands  shall  be  returned 
to  the  insular  treasury.  Experience  has  already  demonstrated  that 
the  insular  treasury  will  receive  very  little  benefit  from  that  provision 
of  law.  The  rates  now  imposed  by  law  upon  imports  into  the  United 
States  from  the  Philippine  Islands  are  still  practically  prohibitive 
and  afford  no  encouragement  to  the  industries  of  these  islands. 

SEIZED  FUNDS  AND   SPECIAL  DEPOSITS. 

Acting  under  the  authority  of  the  act  of  Congress  last  referred  to, 
the  insular  treasurer,  Ihe  auditor,  and  the  assistant  executive  seci-e- 
tary  have  been  appointed  a  committe*^  to  furnish  a  complete  list  of 


888  KKPORTS^    OF    THE    (!IVII.    (JOVKKNMENT 

tlic  Spanish  soi/cd  fiiiuls,  aiul  funds  soizod  from  iiisni\i>(>iits,  and  spoeial 
deposits  in  llio  li'casnry,  and  to  rcfomnicnd  a  schiMuc  for  convcu-linu' 
the  same  into  casli  in  the  insular  ti-easury,  sul)jeeti  to  such  claims  as 
may  be  established  a.^ainst  tlie  funds.  The  committee  has  not.  yet 
made  its  repoi't,  l)ut  it  is  expected  that  the  report  will  soon  be  forth- 
coming" and  suitable  legislation  will  be  eniicted  upon  the  subject. 

INSULAR  BUDGET. 

It  is  impracticable  to  make  estimates  for  the  fiscal  year  1903  that  will 
be  entirely  accurate,  but  to  that  end  a  most  careful  investigatioii  has 
been  made  of  the  necessary  operating  expenses  of  every  department. 
and  bureau  in  the  islands  and  of  the  extraordinary  expenses  that  are 
liable  to  be  incurred,  the  extraordinary  expenses  being  mainly  for 
new  e<iuii)ment  and  permanent  improvements,  and  the  expense  inci- 
dent to  taking  the  census  required  by  the  act  of  Congress  of  July  1, 
1902. 

For  the  first  quarter  of  the  fiscal  year  1903,  ending  September  30, 

1902,  the  total  appropriations  have  been  *2, 646, 994.83,  of  which 
$2,074,820.94  were  for  current  expenses,  and  1572,173.89  were  for 
extraordinary  expenses.  The  appropriations  for  the  city  of  Manila 
are  included  in  this  statement,  all  payments  on  account  of  the  city 
of  Manila  being  made  from  the  insular  treasury. 

Using  as  a  basis  these  data,  as  well  as  the  actual  disliursements 
for  the  latter  portion  of  the  fiscal  year  1902,  when  substantially  all 
the  bureaus  had  been  organized,  and  making  a  suitable  allowance 
for  extraordinary  expenses  that  are  now  foreseen  for  the  fiscal  year 

1903,  the  estimate  is  that  the  total  expenditures  required  will  be 
111,570,637.22,  of  which  1^8,583,209.38  are  for  current  expenses  and 
12,987,427.84  are  for  exti-aordinary  expenses.  All  disbursements  for 
the  city  of  Manila  are  included  in  this  estimate. 

Included  in  the  estimate  for  extraordinary  exx)enses  for  the  fiscal 
year  1903  are  175,000  for  the  suppression  of  ejudemic  diseases  and 
pests,  and  !i;50,000  for  expenses  in  connection  Avith  the  establishnu'ut 
of  a  leper  colony,  $31,149.60  for  apparatus  and  books  for  a  new  lab- 
oratory building;  1875,612.67  for  the  construction  of  vessels  for  the 
coast  guard  and  transpoi-tation,  construction  of  light-houses  and  pur- 
chase of  lanterns;  $362,056.32  for  the  construction  and  maintenance 
of  public  buiklings,  including  the  new  government  laboratory;  $28,406 
for  the  construction  of  wharves  at  Lligan,  Siassi,  Jolo,  and  Parang- 
Parang;  $500,000  for  harbor  improvements  at  the  port  of  Manila; 
$125,000  for  the  Philippine  exhibit  at  the  Louisana  Purchase  Exposi- 
tion, at  St.  Louis;  $150,000  for  the  construction  of  a  road  into  Benguet 
Province;  $54, 706  for  the  purchase  of  a  rock  crusher,  alteration  of  mar- 
kets, completion  of  city  pound,  improvement  and  widening  of  the 
streets  of  Manila;  $56,182.25  for  the  installation  of  the  pail  system 
of  sanitation  in  the  city  of  Manila;  $561,853  for  taking  the  census, 
and  $100,000  for  improvement  of  the  harbor  of  Cebu. 

The  revenues  of  the  insular  government  from  all  sources,  aside  from 
refunds,  during  the  first  quarter  of  the  fiscal  year  1903,  ending  Sep- 
tember 30,  1902,  including  the  city  of  Manila,  amounts  to  $3,272,283.52. 
Using  as  a  basis  the  i-evenues  last  stated  and  the  amount  collected  during 
the  latter  i^ortion  of  the  fiscal  year  1902  it  is  estimated  that  the  i-eve- 
nues  for  the  fiscal  year  1903  will  be  as  follows: 

From  all  departments  of  the  insular  government  proper $9, 389, 858. 36 

From  the  city  of  Manila : 1,407,926.78 

Making  a  total  f)f  10,797,785.14 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  389 

Showing  an  apparent  deficit  of  877-2, 852. 08. 

It  is  anticipated  tliat  some  revenne  will  accrue  from  the  bureau  of 
agriculture  during  the  fiscal  year  1903,  but  no  estimate  of  such  receipts 
has  been  included  in  the  above  computation,  because  of  the  uncer- 
tainty of  results,  nor  are  the  expenses  or  revenues  of  the  forestry 
bureau  included  in  the  estimate,  because  under  a  recent  law  enacted 
by  the  Commission  the  revenues  of  the  forestry  bureau  will  be  returned 
to  the  provinces  from-  which  they  are  collected  after  deducting  the 
expenses  of  collection.  Should  it  be  determined  that  the  revenues 
accruing  from  that  source  should  go  into  the  insular  treasury,  and  the 
expenses  of  collection  be  charged  to  the  insular  government,  the 
expenses  for  the  fiscal  3^ear  1003  should  be  increased  by  $106,568  and 
the  revenue  b}^  approximatelj",  §300,000. 

The  receipts  from  the  city  of  Manila  for  the  fiscal  year  1903  will 
probably  be  more  than  is  above  estimated. 

In  the  statement  of  revenues  collected  the  refundable  export  duties 
collected  in  Manila  on  exports  to  the  United  States  are  not  included, 
nor  in  the  estimate  of  revenues  is  anything  included  for  the  customs 
receipts  for  Philippine  goods  imported  into  the  United  States,  accu- 
rate data  for  this  latter  sum  being  not  available  and  the  amount 
thereof  being  inconsiderable  according  to  such  information  as  has 
been  received. 

Taking  everj^thing  into  consideration,  it  is  probable  that  at  the  end 
of  the  fiscal  year  1903  there  will  be  in  the  treasury  available  for  appro- 
priation approximately  the  sum  of  $3,226,574.39,  aside  from  seized 
funds  and  .special  deposits  now  in  the  treasury  and  from  the  sum  of 
$208,000  received  from  the  Navy  Department  for  gunboats  purchased 
out  of  insular  funds  and  taken  over  by  the  United  States  Navy,  being 
§772,852.08  less  than  the  sum  available  for  appropriation  a1  the  end 
of  the  fiscal  year  1902. 

All  sums  are  stated  in  money  of  the  United  States.  The  details  of 
the  purposes  for  which  the  expenditures  for  the  fiscal  year  1903  will 
bo  made  and  the  sources  of  revenue  from  which  they  will  be  niet  are 
contained  in  the  tabulation  hereto  annexed  and  marked  "  Exhibit  YI." 

BUDGET  OF  THE  CITY  OF  MANILA. 

The  charter  of  the  city  of  Manila  took  effect  on  the  7th  day  of 
August,  1901,  and  the  data  of  its  financial  condition  for  the  fiscal 
year  1902  cover  the  perioa  from  August  7,  1901,  to  June  30,  1902,  and 
show  the  actual  7'eceipts  and  disbursements  down  to  June  11,  1902, 
and  the  estimated  receipts  and  disbursements  from  June  11  to  June 
30,  1902.  They  appear  in  the  report  hereto  annexed,  which  has  been 
pi-cpared  by  the  municipal  board,  and  is  marked  "Exhibit  VII."  The 
aggregate  of  expenses  during  that  period  was  $1,603,893,  in  money  of 
the  United  States;  and  the  receipts  deposited  by  collecting  officers 
during  the  same  period  were  $992,359.05  down  to  June  10, 1902.  The 
estimated  deposits  by  collecting  officers  from  June  lo  to  June  30, 1902, 
were  $69,139.80.  Thirty  per  cent  of  the  expenses  of  the  city  of  Manila 
are,  by  law.  borne  by  the  insular  government,  and  that  30  per  cent 
amounts  to  $481,167.90.  There  is,  therefore,  an  overdraft  which 
the  municipal  government  has  made  upon  the  insular  treasury  of 
$61,226.25,  which  will  be  easily  taken  care  of  from  the  proceeds 
of  collections  for  the  fiscal  year  1902.  The  estimate  of  collections 
from  all  sources  of  revenue  for  the  fiscal  year  1903  is  $1,874,280,  and 
of  ordinary  expenses  for  the  (iscal  year  1903,  $1,556,666;  of  extraor- 


'MK)  REPORTS    OF    THE    CIVIL    (JOVERNMENT 

(liiiai'V  oxi>onst>s,  $;)00,0()0,  lujikiiifj;  a  totjil  of  |1,85(;,(!(;();  from  wliicli 
it  appears  thai  tlic  iiicoim^  will  be  sulliciciiti  lo  iiicot  tln^  ordiiiai-y  and 
cxt  laorcliiiary  ('X[)oiiS('s  for  tlu^  fiscal  year  lllO^)  now  (M)iit('iiiplaU'(l, 
without  ri'fiM'(MU'«'  to  thofoiitributioii  thoi'oto  l"i-oiii  the  insular  treasury. 

The  exhibits  marked  respectively  VIll  and  IX  contain  inventories 
of  lauds,  buildings,  and  other  real  property  belongiu<;'  to  the  city  of 
Manila  on  the  ;5bth  day  of  June,  19U2,  and  of  persoiiHl  property 
belon.uing  to  the  city  at  the  same  date. 

It  will  be  observed  that  the  estimates  for  receipts  and  disbursements 
for  the  liscal  year  liXKi,  as  sliowu  by  Exhibit  VII,  prepared  by  the 
municipal  board,  differ  from  the  estimates  of  the  same  receipts  and 
disbursements  contained  in  Exhibit  VI,  the  municipal  board  estimat- 
ing their  receipts  for  the  fiscal  year  100;3  at  a  larger  sum  than  that 
stated  in  Exhibit  VI,  and  their  expenditni-es  at  a  less  snm.  The 
appropriations  that  have  already  been  made  for  the  city  of  Manila  for 
the  first  two  quarters  of  the  fiscal  year  1903  indicate  that  the  expendi- 
tures for  the  city  will  be  larger  for  the  whole  year  than  the  municipal 
board  have  estimated,  and  it  is  doubtful  if  the  i-evennes  will  be  as 
large  as  the  boai'd  had  estimated.  Should  the  revenues  of  the  city 
prove  as  large  as  the  board  have  estimated,  and  the  disbursements 
not  exceed  their  estimates,  then  the  deficit  in  the  insular  budget  will 
be  diminished  accordingly.  It  has  not  been  deemed  advisable  for  the 
purpose  of  this  report  to  chang(^  the  estimates  contained  in  Exhibit  VI. 

CUSTOMS  TARIFF. 

As  stated  in  the  last  former  report  of  the  Pliilippine  Commission 
to  the  Secretary  of  War,  the  new  customs  tariff  was  enacted  on  the 
17th  day  of  September,  1901,  and  took  effect  on  the  15th  day  of 
November,  1901,  with  the  proviso  that  during  the  first  sixty  days 
after  the  law  became  effective  importers  of  goods  en  route  to  Manila 
might  elect  to  pay  under  the  new  tariff"  or  the  old.  The  large  reduc- 
tions that  were  made  in  the  duties  imposed  upon  the  necessaries  of 
life,  and  the  imi)ortant  free  entry  list  upon  articles  imperatively 
needed  in  the  islands  operated  to  reduce  the  income  materially.  It 
was  hoped  that  the  increased  consumption  which  would  thereby  be 
made  feasible  by  leason  of  the  lower  ]3rice  of  imported  commodities 
might  make  the  revenues  as  great  as  under  the  former  tariff,  or 
greater,  and  such  may  be  the  result  ultimately.  But  the  hoped  for 
reduction  in  retail  prices  has  not  resulted.  The  fluctuations  in  cur- 
rency have  been  made  excuses  for  constant  increases  in  prices  by 
retail  dealers,  so  that  a  very  large  proportion  of  imported  commodi- 
ties are  now  sold  throughout  the  islands  at  a  higher  price  than  one 
year  ago,  computed  in  United  States  currency  values.  If  a  stable 
currency  shall  be  established  it  may  be  anticipated  that  competition 
will  correct  the  evil  of  high  prices  after  a  time,  although  the  reduc- 
tion of  duties  in  Cuba  and  Porto  Rico  seemed  for  a  long  time  to  pro- 
duce little  effect  upon  ordinary  retail  prices.  The  reduction  of 
duties  by  the  Philippine  tariff  revision  law  of  1901  was  not  less  than 
25  per  cent,  and  the  accruing  revenues  have  been  probably  25  per 
cent  less  than  they  would  have  been  under  the  former  tariff. 

One  result  of  the  reduction  of  the  tariff  upon  certain  commodities 
has  apparently  been  to  increase  the  importation  thereof,  although 
other  causes  have  operated  to  influence  the  increased  importation. 

The  reduction  of  duty  upon  wheat  was  from  47  cents  per  100  kilos 
to  25  cents  per  lOO  kilos,  but  practically  no  wheat  was  imported  under 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  391 

either  schedule.  The  reduction  on  wheat  flour  was  from  $1.63  per  100 
kilos  to  40  cents  per  100  kilos.  The  importation  of  flour  has  shown 
an  increase  during-  tlie  past  j^ear  from  114,000  to  151,000  barrels.  The 
former  duty  upon  forage,  ha3%  and  Ijran  was  14  cents  per  100  kilos, 
and  the  present  duty  is  5  cents  per  100  kilos,  and  the  importations  have 
increased  from  700  to  3,000  tons.  The  former  duty  on  canned  fruits 
was  15  cents  per  kilo,  and  the  present  duty  is  from  2  cents  to  4  conts  per 
kilo,  and  the  importations  have  increased  from  42,000  to  700,000 
pounds.  Former  duty  upon  canned  meats  was  15  cents  per  kilo,  and 
the  present  duty  is  from  5  cents  to  20  cents  per  kilo,  most  of  the  goods 
going  under  the  lower  schedule.  There  has  been  an  increase  in  the 
importation  of  canned  meats  from  about  0,000  to  165,000  pounds.  The 
former  duty  on  hams  was  $9.13  per  100  kilos,  and  the  present  duty 
is  $3  per  100  kilos,  and  the  importations  thereof  have  increased  from 
692,000  to  1,800,000  pounds.  The  former  duty  on  lard  was  $9.13  per 
100  kilos,  and  the  present  duty  is  $1.60  per  100  kilos.  The  importa- 
tions of  this  article  have  increased  from  1,200,000  to  2,000,000  pounds. 
The  former  duty  on  canned  salmon  was  15  cents  per  kilo,  and  the 
present  duty  is  3^  cents  per  kilo,  and  the  importations  have  increased 
from  about  8,000"^to  1,500,000  pounds.  The  former  duty  on  unhusked 
rice  was  59  cents  and  husked  rice  63  cents  per  100  kilos,  while  the 
present  duties  are  40  cents  and  50  cents  per  100  kilos  respectively. 
Tlie  total  amount  of  rice  imported  has  increased  from  194,500,000  to 
340,000,000  pounds.  This  last  increase  is  largely  owing  to  the  dimin- 
ished production  of  rice  in  the  islands,  caused  by  the  disasters  of  war, 
and  by  the  death  from  rinderpest  of  animals  essential  to  the  cultivation 
of  rice. 

Attention  is  invited  to  the  supplemental  report  of  the  collector  of 
customs  for  the  Philippine  Archipelago  upon  this  subject,  which  is 
hereto  annexed  and  marked  "Exhibit  X." 

There  has  been  nothing  developed  by  the  working  of  the  new  tariff 
law  to  indicate  that  on  tlie  whole,  and  with  a  view  to  final  results,  the 
tariff  adopted  was  not  such  as  ought  to  have  been  adopted.  Individual 
paragraphs  appear  to  have  imposed  too  high  oi-  too  low  a  duty,  but  in 
general  the  theories  upon  which  the  tariff  was  constructed  seem  now 
to  have  been  wise  and  for  the  best  interest  of  the  islands. 

On  February  6,  1902,  the  Commission  passed  act  No.  355,  entitled 
"An  act  to  constitute  the  customs  service  of  the  Philippine  Archi- 
pelago and  to  provide  for  the  administration  thereof,"  with  a  short 
title  of  "The  Philippine  customs  administrative  act."  The  portion 
of  the  act  whi«di  provides  for  a  court  of  customs  appeals  has  already 
been  referred  to  and  need  not  be  here  further  discussed.  The  act 
has  made  an  effective  organization  of  the  customs  service  of  the 
islands  possible,  and  under  it  practically  all  the  revenue  warranted 
by  law  has  been  colle(!ted.  It  is  based  largely  upon  the  principles  of 
the  customs  administration  laws  of  the  United  States. 

On  March  3,  1902,  the  Commission  passed  act  No.  367,  to  i-eorganize 
the  personnel  of  the  Pliilippine  customs  service  and  to  give  thereby 
uniformity  to  classification,  grades,  and  qualifications  of  customs  offi 
cials  and  employees. 

The  I'acilities^at  tin;  Manila  cust(mi-house  for  the  transaction  of  effi- 
cient clei-ical  work  and  for  the  rapid  receipt  ami  discliarge  of  imported 
merchandise  ai-e  inadequate.  'IMie  sum  of  $75,000  lias  been  provided 
for  extension  of  tli<'  present  custom-house,  and  the  work  lias  already 
been  entered  upon. 
There  has  been  very  gi-eat  complaint  iu  regard  to  the  expense  of 


8V^2  REPORTS    OF    THE    OIVTL    GOVERNMENT 

briiiiiiiiii"  impoi'tod  nuM'cliandiso  from  slcmncrs  in  tho  liarbor  to  the 
t'ustoiM-lioust'  and  wliai'vcs  and  ol'  laiidiiiii'  tlicin  and  placing'  tlicin  in 
tho  proper  warehonsos,  and  ol"  the  (Udiiy  in  sncli  o[KMations,  owin.i;'  to 
tlio  insniVu'icnt  character  of  the  lii^hleriny  and  landiiii;'  facilities  and 
tlie  method  of  carrying  on  that  l)usiness,  and  from  sortin<i;the  cargo 
on  board  t.lie  incoming  steamers  in  such  way  that  each  owner  miglit 
receive  liis  own  merchandis(Mn  liis  own  casco  or  lighter,  or  cascos  and 
ligliters  engaged  by  liim  for  tiiat  purpose.  Steamers  have  lieeii  sub- 
jected to  great  demuri-age  by  tlui  delaj^  incident  to  that  process  and 
to  tlie  insufhcient  binding  facilities  at  the  custom-house  wliarves.  A 
draft  of  a  law  luis  been  prepared  providing  for  an  official  lighterman 
wlio  should  be  awarded,  after  comj)etitive  bidding,  the  exclusive  right 
of  lauding  all  imported  merchandise  arriving  from  foreign  ports,  the 
opei-ations  to  be  all  under  the  direction  of  the  collector  of  customs. 
Public  hearings  have  been  held  upon  the  proposed  bill  and  much 
opposition  to  it  has  been  manifested  on  the  part  of  agents  of  steam- 
sliip  lines  arriving  here,  and  owners  of  cascos,  lighters,  lorchas,  and 
barges  heretofore  engaged  in  that  business.  The  bill  is  now  under 
consideration  by  the  Commission  and  has  received  no  final  action. 
The  discussion,  however,  has  developed  several  points  in  which  im- 
provement can  be  made,  and  no  doubt  increased  and  much  better  facil- 
ities will  be  secured  by  reason  of  such  legislation  as  will  be  enacted. 

The  special  report  of  the  collector  of  customs  for  the  Philippine 
Archipelago  of  the  operations  of  the  Philii)pine  customs  service  from 
June  1,  1901,  to  September  1,  1902,  is  hereto  annexed  and  marked 
"Exhibit  XL" 

During  that  period  a  large  number  of  coastwise  ports  have  been 
opened  and  equipment  and  supplies  for  the  oj^en  ports  have  been  pur- 
chased, many  permanent  repairs  have  been  made,  and  Army  officers 
acting  as  customs  officers  have  been  replaced  by  civil  emploj'ees 
mainly,  and  a  small  revenue-cutter  service  has  been  purchased, 
equipped,  and  put  into  operation. 

Dui'ing  the  fiscal  year  ending  June  30,  1901,  there  was  imported 
into  Manila  foreign  merchandise  to  the  value  of  about  $28,500,000, 
upon  which  the  duties  collected  amounted  to  about  $6,867,000,  the 
average  ad  valorem  rate  under  the  foreign  tariff  being  slightly  over 
24  per  cent.  During  the  fiscal  year  1902  foreign  goods  were  imported 
to  the  value  of  over  $36,500,000,  upon  which  the  duties  collected 
amounted  to  approximately  $6,289,000,  with  an  average  ad  valorem 
rate  under  the  present  tariff  of  something  less  tlian  18  per  cent. 

The  pro  rata  cost  of  collecting  customs  revenue  in  the  Philij)pine 
Islands  is  less  than  it  is  in  the  United  States.  At  Manila,  during  the 
fiscal  year  ending  June  30,  1902,  the  cost  of  collecting  II  of  customs 
revenue  was  $0.0477,  including  the  cost  of  customs  launches,  main- 
tenance of  the  immigration  division,  cost  of  supplies,  janitor's  serv- 
ice, and  night  watchman,  fuel,  lights,  water,  repairs,  and  preservation 
of  pulilic  buildings,  compensation  for  detectives  and  informers.  If 
these  items  were  deducted  from  the  total  expenditures  at  the  i^ort  of 
Manila  for  the  fiscal  year  1902,  as  many  of  them  are  deducted  in  the 
statistics  of  the  United  States,  the  actual  cost  of  collecting  $1  would 
be  $0.0345 — materially  less  than  the  cost  of  collecting  at  the  port  of 
San  Fi'ancisco  or  New  Orleans,  and  practically  the  same  as  at  the 
larger  poi-t  of  Boston. 

In  connection  with  this  statement  of  comparative  expenses  it  should 
be  renuirked  that  the  customs  duties  in  the  Philippine  Islands  are 
practically  one-half  of  what  the  average  customs  duties  are  at  ports  of 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903,  393 

the  LTnited  States,  so  that  double  the  amount  of  business  has  to  be 
transacted  here  to  collect  the  same  amount  of  revenues,  which  makes 
the  showing  still  more  favorable  in  behalf  of  economy  of  the  customs 
administration  in  the  Philippine  Islands.  These  results  have  been 
secui-ed  in  face  of  the  fact  that  it  has  been  difficult  to  secure  compe- 
tent and  experienced  emploj^ees. 

The  total  receipts,  stated  in  money  of  the  United  States,  from  the 
customs  bureau,  including  duties  collected  and  all  other  sources  of 
revenue : 

For  the  fiscal  year  ending  June  30, 1899.  after  American  occupancy, 

were  - $3,106,380.31 

For  the  year  ending  June  30,  1900 5,542,289.15 

For  the  year  ending  June  30,  1901 9,124,810.70 

For  the  year  ending  June  30,  1903 -. 8,525,216.48 

Making  a  total  since  American  occupancy 26, 298, 696. 64 

During  the  j^ear  ending  June  30,  1902,  10,158  Chinese  have  arrived 
at  the  port  of  Manila  and  11,432  have  departed  with  return  certificates. 
It  is  believed  that  few  evasions  of  the  Chinese-exclusion  act  have 
occurred. 

Attention  is  invited  to  the  summary,  attached  to  the  report  of  the 
collector  of  customs,  of  iuiports  by  countries,  including  the  value  of 
and  duties  thereon,  as  well  as  a  similar  statement  relating  to  exjDorts. 

The  collector  of  customs  for  the  Philippine  Archipelago  has  been 
diligent  and  efficient  in  the  performance  of  his  responsible  duties, 

INTERNAL  REVENUE. 

At  the  beginning  of  the  fiscal  year  ending  .June  30,  1902,  the  col- 
lector of  internal  revenue  for  the  islands  was,  tlirough  the  proper 
agents,  collecting  revenue  in  all  parts  of  the  archipelago,  except  in 
provinces  where  civil  government  had  been  established,  in  which 
provinces  the  revenue  was  being  collected  by  provincial  treasurers  in 
accordance  with  law. 

On  July  1,  1901,  the  bureau  of  internal  revenue  had  in  its  service 
46  collectors,  most  of  whom  were  army  or  marine  officers  detailed  for 
this  service,  and  85  clerks  employed  in  45  offices.  The  military  or 
naval  officers  detailed  as  collectors  of  internal  revenue  had  not  been 
relieved  from  their  military  or  naval  duties,  and  the  details  were  fre- 
quently changed,  so  that  the  collection  of  such  taxes  was  partial  and 
irregular. 

On  the  7th  of  August,  1901,  the  act  incorporating  the  city  of  Manila 
took  effect,  and  the  city  assessor  and  collector  for  Manila  was  made 
collector  of  internal  revenue  for  the  archipelago,  his  jurisdiction 
extending  over  the  city  of  Manila  and  over  all  those  portions  of  the 
islands  not  organized'  into  provincial  governments.  As  pi-ovincial 
governments  were,  from  time  to  time,  established,  and  the  duties  of 
internal-revenue  collectors  thereafter  in  such  provinces  appertained 
to  the  provincial  treasurers,  the  work  of  the  collector  of  internal  reve- 
nue gradually  diminished  until,  on  June  30,  1902,  he  had  supervision 
over  tlie  following  parts  of  the  archipelago  only:  Laguna  Province, 
island  of  Sanuir,  island  of  Mindanao  (except  Ihe  provinces  of  Surigao 
and  Misaniis),  island  of  Miiidoro,  the  whole  of  the  Jolo  archipelago, 
including  the  islands  of  J>asilan  and  Siassi  and  theTawi-Tawi  Islands, 
with  15  collectors,  9  of  whom  were  army  or  marine  officers  and  2  were 
customs  officers  performing  the  duties  of  collectors  of  internal  revenue, 


394  RKPORTS    OF    THE    CIVIL    GOVERNMENT 

with  a  force  of  15  clerks.  Since  that  date  the  Jurisdiction  of  tlie  inter- 
nal-revenue collector  has  ceased  in  Lai>una  Province,  the  island  of 
Saniar  and  the  island  of  Mindoro. 

Aside  from  the  city  of  Manila,  therefore,  the  receipts  from  internal 
revenue  have  been  very  small,  owing  to  the  limited  area  from  which 
sucli  receipts  are  collected  and  come  to  the  insulai-  treasury,  and  the 
percentage  of  expenses  for  the  entire  collection  was  necessarily  large, 
amounting  to  !i.3o  per  cent. 

The  internal-revenue  stamps  handled  bj'  the  depai'tment  during  the 
fiscal  year  r.KVJ  are  embraced  in  the  following  state tnent: 

On  hand  July  1 .  1001  $1,061,115.05 

Received  from  printers 43, 500. 00 

Received  from  other  offices 211, 504. 47 

Total .  _ - • $1, 316, 119. 52 

Sold  in  Manila 12,594.35 

Transferred  to  other  offices 437, 499. 05 

TotaL  ^    450,093.40 

Balance  on  hand  Jiine  30,  1902  (local  currency) 866, 026. 12 

There  were  sold  in  Manila  during  the  period  from  July  1  to  August 
7,  1901,  when  the  Manila  charter  took  effect,  internal-revenue  stamps 
amounting  to  $6,297,174  United  States  currency. 

The  total  internal-revenue  collections  for  the  city  of  Manila  during 
the  month  of  July,  1902,  and  six  days  in  August,  show  an  increase  of 
18.77  per  cent  over  the  collections  for  a  similar  period  of  the  fiscal 
year  1901,  caused  by  an  increase  in  business  in  the  city. 

The  industrial  taxes  collected  for  this  period  in  the  city  of  Manila 
amounted  to  154,164.01  United  States  currency,  an  increase  of  20.4 
per  cent  over  the  amount  collected  during  a  similar  period  of  the  fiscal 
year  1901. 

The  total  receipts  of  internal  revenue  collected  for  the  fiscal  year 
ending  June  30,  1902,  amounted  to  $201,380.35  United  States  currency, 
such  receipts  of  the  city  of  Manihi  onty  being  included  from  July  1  to 
August  7,  1901,  and  for  the  provinces  only  during  such  portion  of  that 
year  as  the  collector  of  internal  revenue,  in  distinction  from  the  pro- 
vincial treasurers,  had  jurisdiction  thereof. 

A  new  internal-revenue  law  is  in  course  of  preparation,  based  in  a 
general  waj^  upon  the  system  of  internal  revenue  prevailing  in  the 
United  States,  from  which  it  is  believed  there  can  be  secured  a  large 
increase  in  the  revenues  available  for  the  insular  government. 

In  view  of  the  deficit  for  the  fiscal  year  1903  in  the  insular  treasury 
it  is  believed  that  additional  sources  of  revenue  must  be  sought.  They 
can  not  be  found  in  customs  receipts,  which  now  bear  the  great  bur- 
den of  nearly  the  whole  of  the  expenses  of  the  insular  government, 
nor  is  it  deemed  advisable  to  devote  any  portion  of  the  land  tax  to  the 
maintenance  of  the  insular  government.  That  tax  has  now,  and  nec- 
essarily' invites,  opposition,  and  can  onlj^  be  made  popular  by  dedicat- 
ing all  its  proceeds  to  local  use  in  tlie  locality  where  the  taxes  are  col- 
lected. A  cedula  or  personal  registration  tax  has  long  been  in  force 
in  the  islands,  and  the  people  are  accustomed  to  that  and  ])<\y  it  with 
grumbling,  but  it  is  paid  far  more  willingly  when  the  proceeds  are 
devoted  to  municii)al  and  provincial  uses  and  not  to  the  insular  gov- 
ernment. Such  is  the  system  now  in  operatiou  by  laAv,  and  it  is  believed 
to  be  unwise  to  change  it  at  present.  Some  revenue  will  doubtless 
hereafter  accrue  from  the  sale  of  government  lands,  and  from  forestry 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  395 

products,  which  have  heretofore  been  devoted  to  municipal  and  provin- 
cial uses. 

The  revenues  that  accrue  from  fines  and  costs  imposed  by  the  courts, 
and  the  government  cold-storage  and  ice  plant,  and  from  miscellaneous 
sources  can  not  be  expected  to  increase  to  any  marked  extent  in  the 
immediate  future.  But  a  reasonable  system  of  internal-revenue  taxes 
by  which  large  industries,  corporations,  and  the  manufacturers  of 
liquors,  tol)aceos,  and  cigars  contribute  a  reasonable  sum  for  the  pro- 
tection Avhich  they  receive  from  the  government,  and  for  tlie  franchises 
that  are  secured  to  them,  ought  to  provide  a  material  addition  to  the 
available  resources  and  to  i^revent  further  deficits. 

The  report  of  the  internal-revenue  collector  for  the  fiscal  year  1902 
is  hereto  annexed  and  marked  "Exhibit  XII." 

FINANCIAL  CONDITION  OF  THE  PROVINCES  AND  MUNICIPALITIES. 

It  is  impossible  to  give  at  this  time  an  accurate  view  of  the  financial 
condition  of  the  various  provinces  and  municipalities.  The  report  of 
the  auditor,  hereto  annexed,  contains  the  details  so  far  as  available. 
Many  of  the  provinces  were  not  organized  until  after  the  commence- 
ment of  the  fiscal  year  1902,  so  that  the  reports  as  to  such  provinces 
are  onlj^  for  fractional  parts  of  the  year.  The  ijrovinces  of  Samar, 
Laguna,  Paragua,  and  Lepanto-Bon toe  were  organized  just  at  the  close 
of  the  year  or  immediately  after  is  close.  The  statistics  do  not  include 
all  the  municipal  taxes,  because  there  are  certain  minor  license  taxes 
paid  directly  to  the  municipal  treasuries  which  do  not  appear  in  the 
statements  of  the  provincial  treasurers.  Otherwise  the  accounts  of 
the  several  provincial  treasurers  contain  the  total  receipts  and  dis- 
bursements both  from  taxes  levied  for  the  benefit  of  the  provinces  and 
those  levied  for  the  benefit  of  the  municipalities.  Some  taxes  are 
levied  for  the  joint  benefit  of  the  municipalities  and  the  provinces  in 
accordance  with  provisions  of  law. 

The  following  sumnuiry  will  show  the  general  financial  condition  of 
the  provincial  and  municipal  governments: 

Province  of  Abra. — Organized  August  19,  1901;  total  receipts, 
$11,321.02;  ))alance  in  treasury  June  30,  1902,  $1,020.67.  This  is  a 
province  of  limited  resources. 

Alhai/.— Organized  April  20, 1901 ;  total  receipts,  $111,683.64,  includ- 
ing $2,500  on  hand  June  30,  1901;  balance  in  treasury  June  30,  1902, 
$22,06]  .60.  This  is  a  hemp-producing  province,  and  therefore  in  good 
financial  condition. 

Amhos  Caniaruies. — Organized  April  27, 1901;  total  receipts,  $106,- 
682.52,  including  $2,500  on  hand  June  30,  190],  and  $25,000  borrowed 
fi-om  the  insular  treasury;  l)alance(m  hand  June  30,  1902,  $34,220.84. 
This  province  is  in  fair  financial  condition. 

Anilqiie.—Org-dum^d  April  13,  1901;  total  receipts,  $28,635.04, 
including  $2,500  on  hand  June  30,  1901 ;  balance  on  hand  May  31, 1902, 
$2,325.04.  The  statistics  from  May  31  to  June  30,  1 902,  were  not  avail- 
able at  the  time  of  preparation  of  the  auditor's  report.  Tliis  province 
is  one  of  limited  resources  anrl  has  been  badly  afi'ected  by  locusts  and 
rinderpest. 

Bo /nan. —Organized  March  2,  1901;  total  receipts,  $37,435.20, 
including  ])alance  on  hand  June  30,  1901,  $1,507.80;  balance  in  treas- 
ury June  30,  1902,  $5,245.80.  This  is  a  small  province,  but  one  able 
to  maintain  itself. 

Batangas. — Organized    May    2,    1901;    total    receipts,    $58,560.80, 


l\\){\  report:^  of  the  crviL  (Government 

inchuliiisi  !?:2,50o  on  haiul  Juno  ;U),  1!»01 ;  balance  in  treasury  June  30, 
1902,  8li,8"'i-'''>-  Tliis  province  was  rorniorly  a  very  rich  one,  but  it 
has  been'i>i"^'JV<ly  devastated  by  war,  and  duriiij^tlie  whole  of  the  fiscal 
year  1  i)0-J  was  under  military  government,  and  active  war  was  prevailing 
for  a  consitlerable  portion  of  the  time.  It  is  thought  that  this  province 
will  be  entirely  self-sustaining  hereafter,  possibly  needing  temporary 
loans  fi'om  the  insular  treasury. 

^>,/,(y„(./. —Organized  November  23,  I'JOU;  total  receipts,  17,071.40; 
bahuR'e  in  treasury  J  une  30,  J  !)02,  $131.  G5.  Tliis  province  is  not  organ- 
ized under  the  "Provincial  government  act,"  but  under  a  special  act, 
and  the  government  thereof  is  supported  almost  wholly  from  appro- 
priations from  the  insular  treasury.  The  inhabitants  are  mainly 
Igorrotes  and  are  not  at  present  able  to  contribute  largely  to  the  sup- 
port of  the  provincial  government. 

75'(^/,o/.— Organized  April  20,  1901;  total  receipts,  $50,801.75,  includ- 
ing a  loan  from  the  insular  treasury  of  $2,500;  balance  in  treasury 
June  30,  r.i02,  $22,115.80.  Thi*  province  was  under  a  military  gov- 
ernnuMit  for  a  considerable  portion  of  the  fiscal  year,  but  it  is  entirely 
al)le  to  support  itself  hereafter. 

B nlacan. —Ovgamzed  February  27,  1001;  total  receipts,  183,385.20, 
including  $2,052.58  on  hand  June  30,  1901 ;  balance  in  treasury  June 
30,  1902,  $15,961.73.     This  province  will  be  self-supporting. 

Ca(/a(/cui.— Organized  September  1,  1901;  total  receipts,  $69,102.99; 
balance  in  treasury  June  30,  1902,  $33,804.68.  This  province  is  one 
of  large  natural  resources  and  will  be  self-sustaining. 

Ccq^iz.— Organized  April  13,  1901 ;  total  receipts,  $70,375.19,  includ- 
ing balance  on  hand  June  30,  1901,  $2,500,  and  a  loan  from  the  insu- 
lar treasury  of  $25,000;  balance  in  treasury  June  30,  1902,  $14,706.78. 
This  province  has  been  greatly  afflicted  by  locusts  and  rinderpest, 
and  ladronism  caused  by  poverty.  It  is  believed,  however,  that  the 
province  will  not  need  further  aid  from  the  insular  treasury. 

Co y//e.— Organized  June  11, 1901;  total  receipts,  $64,482.24,  includ- 
ing $2,500  loaned  from  the  insular  treasury;  balance  on  hand  June 
30,  1902,  $9,166.97.  The  progress  of  this  province  h-as  been  interfered 
with  to  a  considerable  extent  by  ladronism,  but  it  is  believed  that  the 
province  will  be  self-sustaining. 

(7e?>w.— Organized  April  18,  1901;  total  receipts,  $132,457.45,  includ- 
ing $2,500  on  hand  June  30,  1901;  balance  in  treasury  June  30,  1902, 
$30,755.93.  The  province  was  under  military  government  during  a 
great  portion  of  the  fiscal  year,  but  has  been  self-sustaining  and  will 
undoubtedly  be  so  permanently. 

//oco.s-  A^or^e.— Organized  September  1,  1901;  total  receipts,  $55,- 
604.54,  including  $2,500  loaned  from  the  insular  treasury;  balance  on 
hand  June  30,  1902,  $12,184.06.     This  province  will  be  self-supporting. 

JZoco.s-.S'iir.— Organized  September  1,  1901;  total  receipts,  $69,355.44, 
including  loan  of  $2,500  from  the  insular  treasury;  balance  on  hand 
June  30,  1902,  $14,054.74.     This  province  will  be  self-sustaining. 

7/0//0.— Organized  April  11,  1901;  total  receipts,  $202,290.07,  includ- 
ing loan  from  the  insular  treasuiy  of  $25,000;  balance  on  hand  June 
30,  1902,  $17,978.91.  This  province  will  be  self-sustaining,  but  has 
suffered  seriously  from  ladrones  during  the  past  year.  The  loan 
from  the  insular  treasury  was  made  to  enable  the  province  to  combat 
cholei-a  and  to  aid  the  poorer  municipalities  by  loans. 

Xs-aWa.— Organized  September  10,  1901;  total  receipts,  $42,647.44, 
including  $2,500  loaned  from  the  insular  treasury;  balance  on  hand 


OF    THE    PHILIPPINP:    islands,    1900-1903.  397 

June  oO,  1902,  $6,495.84.     This  iwovince  has  large  natural  resources 
and  will  be  self-sustaining. 

Leyte. — Organized  April  22, 1901 ;  total  receipts,  $122,815.36,  includ- 
ing $90  on  hand  June  30,  1901;  balance  in  treasury  June  30,  1902, 
$23,196.06.  This  is  a  hemp-producing  province.  It  Avas  disturbed 
during  the  fiscal  year  largely  by  reason  of  the  war  in  the  adjacent 
province  of  Samar.  The  province  is  a  rich  one  and  will  be  undoubt- 
edl}'^  self-sustaining. 

Marinduque. — Organized  May  1,  1901;  total  receipts,  $23,380.18, 
including  balance  on  hand  June  30,  1901,  of  $2,500;  balance  in  treas- 
ury June  30,  1902,  $3,372.16.  This  is  a  small  province,  to  which  the 
island  of  Mindoro  has  recently  been  added.  The  province  will  proba- 
h\y  be  self-sustaining,  as  it  has  great  natural  resources. 

ilfas6r^/e.— Organized  March  18,  1901;  total  receipts,  $29,379.34, 
including  balance  on  hand  June  30,  1901,  $2,990.89;  balance  in  treas- 
ury June  30,  1902,  $4,934.67.  This  province  is  one  that  has  a  small 
population,  and  it  has  had  its  principal  industry  (cattle  raising)  nearly 
destroyed  by  rinderpest.  It  is  doubtful  whether  the  province  can 
continue  to  maintain  itself  financially,  unless  the  income  from  its 
forestrj^  products  is  all  returned  to  it.  Its  resources  and  forestry 
products  are  large  and  capacity  foi-  cattle  producing  is  great. 

Misam  /.§.— Organized  May  15. 1901 ;  total  receipts,  $39,901.96,  includ- 
ing $2,500  borrowed  from  the  insular  treasury;  balance  on  hand  June 
30,  1902,  $8,060.89.  This  province  is  not  a  rich  one,  but  will  be  self- 
sustaining. 

Nueva  Ecija. — Organized  June  11,  1901;  total  receipts,  $44,386.11, 
including  $2,000  borrowed  from  the  insular  treasury;  balance  on  hand 
June  30, 1902,  $2,584.96.  The  loan  from  the  insular  treasury  has  been 
repaid.     This  j^rovince  should  be  self-sustaining. 

Nueva  Vizcaija. — Organized  January  28,  1902;  total  receipts, 
$3,020.48;  balance  on  hand  June  30,  1902,  $2,193.82.  This  province 
is  not  organized  under  the  general  "Provincial  government  act,"  but 
under  a  special  act  of  a  paternal  character.  The  inhabitants  are 
mainl}'  non-Christian  people,  and  the  government  must  for  the  present 
be  supported  from  tlie  insular  treasury. 

Occidental  Negros. — Organized  April  20,  1901;  total  receipts  $143,- 
626.93,  including  $21,931.60  received  from  the  former  government  of 
the  island  of  Negros  under  the  provisions  of  act  No.  119;  balance  in 
treasury  June  30,  1902,  $47,071.09.  This  is  n  sugar-producing  prov- 
ince and  will  be  al)undantl3^  able  to  support  itself.  The  financial  affairs 
of  the  old  government  of  both  Occidental  and  Oriental  Negros  has 
been  adjusted  during  the  fiscal  year. 

Oriental  iVer/ros.— Organized  May  1,  1901;  total  i-eceipis  $72,175.03, 
including  balance  on  hand  June  30, 1901,  of  $3,356.16;  balauce  in  treas- 
ury June  30,  1902,  $16,966.80.     This  province  will  be  self-sustaining. 

PainiMUKja. — Organized  February  13, 1 901 ;  total  receipt  s $1 3'.t,  1 88.01, 
including  $3,649.42  on  hand  June  30,  1901;  balance  in  ti-easury  June 
30,  1!»02,  $57,952.69.  This  province  is  in  good  financial  condition  and 
will  be  self-sustaining. 

Pantjasinan. — Organized  February  IS,  l!)()i;  total  i-eeeii)ls  $189,- 
448.95,'  inelu<ling$ll,70!t.02on  hand  June  30,  1901;  balance  in  treasury 
June  30,  1902,  $26,259.07.  This  is  a  large  province  and  abundantly 
able  to  sup])ort  itself. 

7^/,ifr/.— Organized  June  II,  19<»I;  total  receipts  $53,114.49,  includ- 
ing $2,500  loaned  from  the  iiisulai- treasury ;  balance  on  hand  June 
30,  1902,  $12,318  08.     This  province  will  be  self-sustaining. 
23181—04 26 


;U)8  KKPOKTS    OK    THK    CIVIL    (JOV  KKNMENT. 

R,)mh]on.—Ovi:!;imvMK\  Mnwh  10,  IDOl;  total  rocoipts  *L>2,5(;0.S4, 
iiK'liuliiiix  871. 8S  oil  luiud  June  30,  TJOl;  balance  in  treasury  June  30, 
V,K)-2,  -^1*, 708. 30.  This  is  a  small  province,  but  probably  will  be  able 
to  maintain  itself. 

So rsogon.— Organized  April  30,  1901;  total  receipts  $107,532.78, 
ineludinj?  $2,500  loaned  from  the  insular  tn^asury;  balance  on  hand 
June  30,  1902,  824,172.69.  This  is  a  liemp-produciug  province,  and 
will  be  able  to  take  care  of  itself  financially. 

AS^/r/j/rto.— Organized  May  15, 1901;  total  receipts  $32,386.30,  includ- 
ing 82,000  borrowed  from  the  insular  treasury;  balance  on  hand  June 
30^  1902,  88,618.55.  This  province  is  not  a  rich  one,  but  will  probably 
be  able  to  sustain  itself. 

r^r/ar.— Organized  February  18,  1901;  total  receipts  $94,769.97, 
including  $25.78  on  hand  June  30,  1901;  balance  in  treasur}^  June  30, 
1902,  118,162.21.     This  province  will  ])e  self-sustaining. 

7V///a?K;.s'.— Organized  March  12,  1901;  total  receipts  $84,096.17, 
including  $2,935.49  on  hand  June  30,  1901;  balance  in  treasury  June 
30,  1902,  $22,588.36.  This  province  was  disturbed  during  a  i)ortion 
of  tlie  year  by  the  hostilities  in  the  adjacent  province  of  Batangas, 
but  will  be  abundantly  able  to  sustain  itself. 

Union. — Organized  August  15,  1901;  total  receipts  $66,714.81, 
including  $2,500  borrowed  from  the  insular  treasury;  balance  on  hand 
June  30,  1902,  $5,556.99.     This  province  will  be  self-sustaining. 

Z«wi6«?e.s.— Organized  August  28,  1901;  total  receipts  $33,940.24, 
including  a  loan  of  $2,500  from  the  insular  treasury;  balance  on  hand 
June  30,  1902,  $10,466.74.  This  province  is  one  of  limited  resources, 
but  will  probably  be  able  to  sustain  itself. 

The  total  receipts  of  the  provincial  treasuries  during  the  fiscal  year 
aggregate  $2,517,265.13,  including  municipal  funds  collected  by  pro- 
vincial treasuries,  and  the  balance  on  hand  June  30,  1902,  in  the  sev- 
eral treasuries  amount  to  $557,929.62.  Included  in  the  receipts  are 
loans  from  the  insular  treasury  of  $104,000.  Included  in  the  dis- 
bursements are  $12,000  for  loans  repaid  to  the  insular  treasury.  Most 
of  the  loans  to  provincial  governments  from  the  insular  treasuiy  were 
for  the  purpose  of  enabling  the  provincial  governments  to  equip 
themselves  with  necessary  offices,  books,  furniture,  etc.,  at  the  out- 
set before  revenue  had  accrued.  Those  loans  were  $2,500  each.  The 
larger  loans  have  been  made  to  meet  emergencies  caused  by  cholera 
and  rinderpest. 

All  sums  in  the  provincial  statements  above  given  are  in  money  of 
the  United  States,  local  currency  being  reduced  to  money  of  the 
United  States  at  the  ratio  existing  June  30,  1902. 
Very  respectfully, 

Henry  C.  Ide, 
Secretary  of  Finance  and  Justice. 


REPORT  OF  THE  SECRETARY  OF  PUBLIC 
INSTRUCTION. 


Office  of  Secretary  of  Public  Instruction, 

Manila,  P.  /.,  Novmtber  1,  1902. 
The  Philippine  Commission. 

Gentlemen:  I  have  the  honor  to  submit  to  you  the  fii'st  annual 
report  of  the  secretary  of  public  instruction,  which,  except  where 
otherwise  indicated,  covers  the  year  ending  October  15,  1902,  and 
relates  to  the  oi-ganization  and  activity  of  the  bureaus  of  education,  of 
architecture  and  construction  of  public  buildings,  of  public  printing, 
of  archives,  of  public  libraries  and  museums,  of  statistics  of  the  cen- 
sus, and  of  the  Official  Gazette,  embraced  in  accordance  with  act  No. 
222  and  the  acts  establishing  them,  under  the  executive  control  of  the 
department  of  public  instruction. 

ORGANIZATION  OF  PUBLIC  INSTRUCTION. 

In  organizing  the  system  of  public  instruction  in  the  Philippines, 
with  an  incomplete  knowledge  of  the  actual  conditions  of  the  country, 
it  was  not  to  be  expected  that  the  provisions  made  in  the  beginning 
would  be  found  permanently  satisfactory.  The  administration  of 
the  affairs  of  the  bureau  ofeducatjon  was  originally  placed  in  the 
hands  of  a  general  superintendent,  who  was  assisted  by  10  division 
superintendents.  The  division  .superintendents  resided  in  the  10 
divisions  into  which  the  archipelago  was  divided.  Under  the  suner- 
vision  of  the  general  superintendent,  each  division  superintendent 
exercised  inmiediate  control  over  the  schools  in  his  division.  As 
more  teachers  were  employed  and  the  school  affairs  of  more  towns 
required  the  attention  of  the  division  superintendent,  it  was  found  that 
the  10  division  superintendents  could  not  properly  perform  the  work 
expected  of  them.  Then  by  an  amendment  enacted  July  21,  lUOl,  the 
number  of  division  superintendents  was  increased  from  10  to  18. 
Under  this  organization  nearly  1,000  American  teachers  were  appointed 
and  assigned  to  positions  in  different  parts  of  the  archipelago.  In  this 
work  of  ])lacing  the  teacheis  where  they  were  most  needed  the  division 
superintendents  renderiMl  vaUuil)le  assistance  to  tlic  general  superin- 
tendent. They  made  themselves  familiar  with  ti)e  conditions  in  their 
several  divisions  l)y  svstematic  investigation  and  personal  inspection, 
and  were  authorized 'to  select  from  the  teachers  already  appointed, 
subject  to  the  approval  of  the  general  superintendent,  such  teachers  as 
.seemed  to  them  best  fitted  to  establish  and  conduct  schools  in  the  dif- 
ferent T)arts  of  theii  several  divisions.  In  the  course  of  time,  how- 
ever, the  work  required  of  the  division  superintendents  became  too 

399 


400  REPORTS    OF    THE    CIVIL    GOVERNMENT 

groat  to  ho  succossfully  porformod  by  them  without  assistance.  To 
supply  this  doticioiu'V  the  general  superintendent  in  some  cases  assigned 
teachers  to  act  as  chn-ks  in  tlie  ofHces  ot"  the  division  superintendents, 
and  in  orthM'  that  there  might  be  some  person  in  each  province  of  the 
division  witii  whom  the  division  superintendent  might  correspond  and 
who  might  j)erform  such  work  of  supervision  as  might  be  required 
of  liim,  a  law  was  enacted  on  September  20,  li)Ol,  providing  for 
the  ai)pointment  of  de]>utv  division  superintendents.  By  this  hiw 
the  deputy  division  su})erintcndent  was  required  to  be  a  teacher 
actually  engaged  in  instruction.  He  was  authorized  to  exercise,  under 
certain  limitations,  the  functions  of  the  division  superintendent,  but 
his  action  w^as  subject  to  confirmation  by  that  officer.  The  limita- 
tions referred  particularly  to  the  power  to  appoint  school-teachers  for 
the  uumicipalities  and  to  lix  their  salaries,  which  could  be  done  only 
by  the  division  superintend(>nt  himself.  The  numl)er  of  deputy  divi- 
sion superintendents  was  to  be  determined  ])y  the  general  superintend- 
ent as  they  seemed  to  1)0  needed  in  the  several  divisions,  but  this 
num])er  in  any  division  might  never  exceed  the  luuubor  of  provinces 
in  that  division.  It  was  originally  expected  that  the  work  required 
of  the  deputy  division  superintendent  might  be  performed  without 
interfering  with  his  regular  work  as  teacher,  and  in  this  view  it  was 
required  by  law  that  he  should  be  a  teacher  actually  engaged  in  the 
work  of  instruction.  The  extension  of  the  work  of  the  bureau  of 
education  soon  demanded  all  the  time  and  energy  of  the  deputies,  and 
under  this  demand  they  wei'o  temporarily  relieved  b}^  the  general 
superintendent  from  their  work  as  teachers  and  ordered  by  him  to 
devote  themselves  exclusively  to  the  business  of  organizing  and  super- 
vising- the  schools  in  the  several  provinces  in  which  they  resided. 
This  arrangement  had  two  defects.  In  the  first  place,  it  was  not  in 
accordance  with  the  requirement  of  the  law  of  September  20,  1901; 
in  the  second  place,  it  was  not  sufficiently  simple  to  work  with  the 
most  economic  expenditure  of  force.  The  deput}'^  division  superin- 
tendents corresponded  with  the  division  superintendents  and  these 
in  turn  with  the  general  superintendent.  In  order,  therefore,  to 
bring  the  educational  affairs  of  all  parts  of  the  archipelago  more 
directly  under  the  head  of  the  general  superintendent  and  to  provide 
for  a  more  effieient  management  of  the  school  affairs  in  each  province, 
an  important  change  in  matters  of  school  supervision  was  made  ])y  the 
law  enacted  October  8,  1!>02.  Among  other  provisions,  this  law 
repealed  the  act  fixing  the  number  of  division  superintendents  at  18, 
the  law  establishing  the  office  of  deputy  division  superintendent,  and 
parts  of  certain  other  laws  in  conflict  with  the  provisions  of  the  act 
itself.  It  divided  the  archipelago  into  30  school  divisions.  The  sev- 
eral divisions,  except  in  a  few  cases,  were  made  to  coincide  with  the 
provinces.  In  each  of  these  divisions,  except  those  corresponding  to 
the  pi'ovinces  of  Bonguet,  Lopanto-Bontoc,  Nueva  Vizcaya,  and  Para- 
gna,  a  regularly  ai)pointed  division  su})orint(MHlont  was  i)rovided  for. 
In  oiieh  of  the  four  ])rovincos  excepted  it  Avas  provided  that  the  gov- 
ei-nor  should  net.  w  ithout  additional  compensation,  as  division  super- 
intendent. This  arrangement  is  justified  by  the  fact  that  in  Fjonguot, 
Lepanto-Rontoc,  and  Nueva  Vizcaya  the  n'lajority  of  the  inhabitants 
are  Ig(jrrotos,  living  in  a  semisavago  state,  whili>  the  province  of 
Paragna  embi-aces,  in  addition  to  the  northern  half  of  the  island  of 
Paragua,  a  large  number  of  small  islands  belonging  to  the  Cuyos  and 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903,  401 

Calamianes  groups,  and  contains  a  limited  and  scattered  population. 
Assistance  in  caiTving  on  the  office  work  of  the  division  is  provided 
for  by  authorizing  the  appointment  of  one  clerk  for  each  division 
superintendent.  In  addition  to  the  teachers  appointed  for  the  munici- 
palities bv  the  division  superintendent,  whose  salaries  are  paid  by  the 
municipalities,  the  general  superintendent  is  authorized  to  keep  in  the 
service  of  the  insular  govern.ment  a  force  of  1,000  trained  teachers  for 
the  primary  schools  and  such  other  additional  trained  teachers  as  may 
be  necessary  for  the  provincial  schools  of  secondary  instruction.  The 
salaries  of  the  teachers  of  primar}^  schools  range  from  the  few  dollars 
received  by  the  Filipino  teacher  in  the  poorest  pueblo  to  $1,500  per 
annum.  For  the  salaries  of  secondary  teachers  an  upper  limit  of 
$1,800  per  annum  has  been  fixed.  The  annual  salaries  of  the  division 
superintendents  range  from  $1,500  to  $2,500;  only  three  of  this  num- 
ber, however,  receive  the  highest  salary.  The  salaries  of  the  division 
superintendents,  of  the  teachers  of  the  provincial  schools,  of  the 
American  primary  teachers,  and  of  the  clerks  in  the  offices  of  the 
division  superintendents  are  paid  with  funds  appropriated  from 
the  insular  treasur3^  The  offices  of  the  division  superintendents  are 
provided  by  the  several  provinces. 

While  under  the  new  organization  the  number  of  division  super- 
intendents is  increased  from  18  to  36,  the  office  of  deputy  division 
superintendent  is  abolished,  so  that  the  total  cost  of  the  work  of 
superintendence  is  reduced  by  about  25  per  cent  and  its  efficiency  is 
greatl}'  increased. 

In  addition  to  the  general  superintendent  and  the  division  super- 
intendents already  pi'ovided  for,  it  will  probably  be  found  necessary, 
in  view  of  the  exacting  duties  of  the  office  of  general  superintendent 
and  the  desirability  hereafter  of  his  spending  considerable  time  in  the 
several  divisions,  to  appoint  an  assistant  general  superintendent  to 
divide  with  the  general  superintendent  the  work  of  the  office  and  the 
w^ork  of  inspection  in  the  field.  In  making  this  appointment  it  will 
be  well  to  promote  to  this  office,  when  created,  a  division  superintend- 
ent who  has  become  familiar  with  the  affairs  of  his  division  and  who 
has  shown  in  his  work  knowledge,  adaptability,  and  good  judgment. 

On  September  25, 1902,  Dr.  F.  W.  Atkinson,  general  superintendent 
of  education,  presented  his  resignation  to  the  civil  governor,  to  take 
effect  December  31,  1902.  The  suggestion  here  made  with  respect  to 
an  assistant  general  superintendent  may  very  well  be  carried  out  when 
Dr.  Atkinson's  successor  assumes  the  duties  of  his  office. 

THE   AMERICAN    TEACHERS. 

The  American  teachers  hiive  )>een  appointed  or  selected  in  general 
in  two  ways— either  directly  by  the  general  superintendent  or  by  per- 
sons or  institutions  in  the  Fnited  States  autlu)rize(l  to  select  a  definite 
nuni])er.  It  is  not  to  be  expected  that  some  mistakes  would  not  be 
made  in  appointing  so  largo  a  numl)er  of  persons  in  a  very  limited 
period,  but,  considering  the  whole  immber  of  teachei-s,  the  quality  has 
been  eminently  satisfactory.  These  teachers  were  not,  however,  all 
l)rought  from"  AuK^-ica,  but  a  number  were  appointed  who  were 
alreadv  in  the  Piiilippines.  Among  these  latter  were  included  dis- 
charged vohmteer  and  regular  soldiers,  and  wiv(>s  and  relatives  of 
officers  and  civilians.     At  the  outset  those  who  were  sent  into  the 


402  REPORTS    OK    THE    CIVIL    GOVERNMENT 

more  remote  towns  suflfered  certain  hard.ships,  not  the  least  of  which 
was  their  isolation.  Their  food  was  often  such  as  they  were  unaccus- 
tomed to.  and  the  change  from  the  conditions  which  th(\y  had  left  was 
often  such  as  to  cause  homesickness  and  a  certain  nu^asui'e  of  dissatis- 
faction with  their  lot.  The  long-  intervals  which  sometimes  occurred 
between  the  comino-  of  the  mails,  and  the  consequent  difficulties  of 
hearing-  from  friends  and  receiving  their  pay  promptly,  tended  to 
develop  in  many  cases  a  considera])le  measure  of  discontent,  and  when 
the  pay  arrived  it  was,  by  reason  of  the  depreciation  of  the  local  cur- 
rency, found  to  be  worth  less  than  at  the  time  when  they  should  have 
received  it.  In  addition  to  these  causes-  they  were  also  sometimes 
affected  by  the  difficulties  which  they  encountered  in  sending  money 
to  the  United  States.  But  as  the  monetary  difficulties  disappeared,  as 
they  became  adjusted  to  their  new  surroundings,  as  the  civil  supply 
stores  made  available  a  better  quality  of  food,  and  as  they  became 
more  intimately  acquainted  with  the  people,  they  turned  to  their  work 
with  new  zeal,  and  appear,  in  many  cases,  to  have  found  in  it  a  high 
degree  of  satisfaction.  It  might  be  added  that  the  increases  in  a  large 
number  of  their  salaries  during  the  year  tended  to  impress  upon  them 
the  thought  that  their  services  were,  after  all,  appreciated.  The 
strong  desire  on  the  part  of  the  more  intelligent  Filipinos  to  have 
their  children  educated,  and  the  aptitude  of  the  childi-en  to  learn  have 
generally  made  the  way  of  the  American  teacher  easy,  and  given  him 
or  her  a  high  place  in  the  regard  of  those  among  whom  they  worked. 
This  friendly  attitude  of  the  people  toward  the  teachers  has  been  met 
by  the  heroic  efforts  of  many  of  the  teachers  in  behalf  of  the  Filipinos 
afflicted  with  cholera.  When  the  scourge  appeared  and  the  schools 
were  closed,  in  almost  every  instance  the  teacher  stood  at  his  post  and 
did  whatever  was  possible  for  him  to  do  to  relieve  the  sufferings  of 
the  people  and  impede  the  progress  of  the  disease,  and  four  of  them 
became  its  victims. 

The  number  of  American  teachers  connected  with  the  bureau  of 
education  between  January,  1901,  and  September,  1902,  was  l,Q7i,  but 
the  highest  number  on  the  rolls  at  any  one  time  was  926.  Between 
May,  1902,  and  September  of  the  same  year  this  number  was  diminished 
so  that  on  the  1st  of  Septem})er,  1902,  there  were  815  American  teachers 
in  active  service.  This  number  included  the  division  superintendents 
and  deputy  division  superintendents.  The  total  mimber  separated 
from  the  service  during  the  period  in  question,  from  the  beginning  of 
1901  to  the  1st  of  Septem])er,  1902,  was  229;  15  of  these  by  death,  2 
on  account  of  the  death  of  other  persons,  61  by  reason  of  sickness 
either  of  the  teacher  himself  or  some  member  of  his  family,  69  wives 
of  soldiers  and  other  transient  residents  who  had  been  appointed  in  the 
islands,  10  women  married,  21:  men  appointed  to  civil  positions,  3  om- 
missioned  as  military  officers,  8  dismissed  or  discharged,  7  deserted, 
and  30  resigned — some  of  these  last  for  the  good  of  the  service,  others 
on  account  of  dissatisfaction  with  monetary  and  other  conditions,  and 
a  few  to  engage  in  business  or  other  affairs. 

In  addition  to  the  American  teachers  there  have  ])een  employed  in 
the  period  in  question  a  large  number  of  Filipino  teachers.  In  view 
of  the  fact  that  some  of  these  teachers  were  appointed  by  the  munici- 
pal authorities  before  the  organization  of  the  public-school  system  and 
.some  since  its  organization  in  violation  of  the  provision  placing  the 
appointment  in  the  hands  of  the  division  superintendent,  it  has  been 


OF   THE    PHILIPPINE    ISLANDS,   1900-1903.  403 

impossible  to  keep  in  the  general  office  an  accurate  statement  of  the 
whole  number  of  Filipino  teachers  in  the  service  at  any  given  time. 

In  the  day  schools  of  Manila  in  July,  1901,  the  number  in  attend- 
ance was  5,123.  On  account  of  the  cholera  the  number  in  August, 
1902,  was  3,044.  In  the  report  of  last  year  it  was  said  that  at  the  time 
there  were  probably  over  150,000  Filipino  pupils  enrolled  in  the  free 
primary  schools  and  over  75,000  in  actual  attendance.  It  was  stated 
that  there  were  probably  3,000  to  4,000  elementary  Filipino  teachers, 
1,800  to  2,000  of  whom  were  receiving  one  hour  of  English  instruction 
daily;  that  there  were  at  least  10,000  adults  receiving  instruction  in 
English  in  the  evening  schools,  and  that  there  would  shortly  be  from 
20,000  to  30,000  attending  these  schools.  During  the  present  year 
there  are  more  than  200,000  Filipino  pupils  enrolled  in  the  primar}'- 
schools,  about  65  per  cent  of  whom  are  in  actual  attendance.  The 
number  of  Filipino  teachers  appointed  by  the  division  superintendents 
is  2,625  and  the  total  estimated  number  3,400.  There  is  a  combined 
teaching  force  of  Americans  and  Filipinos  of  4,227.  The  night  school 
enrollment  for  the  past  year  has  been  about  25,000,  and  the  estimated 
actual  attendance  is  about  70  per  cent  of  this  number.  Between  15,000 
and  20.000  pupils  are  already  enrolled  in  the  provincial  schools  of  sec- 
ondary instruction. 

A  majority  of  the  American  teachers  now  engaged  in  the  Philippines 
arrived  at  nearly  the  same  time,  and  their  several  terms  of  service  will 
expire  during  the  coming  year.  In  view  of  this  fact  it  is  imperative!}^ 
necessar}^  that  prompt  action  should  ))e  taken  either  to  place  the  whole 
body  of  teachers  who  have  rendered  satisfactory  service  during  their 
residence  in  the  islands  in  the  classitied  civil  service,  or  by  some  other 
means  to  assure  them  of  the  determination  of  the  government  to  retain 
them  in  their  positions.  In  the  beginning  a  large  number  of  teachers 
were  required  on  short  notice,  and  it  would  probably  have  been  impos- 
sible to  have  secured  them  within  the  proper  time  bv  the  means 
employed  under  the  civil-service  law.  It  was  inevitable  under  the 
system  that  there  would  be  complaints  about  unjust  discrimination. 
The  person  whose  qualifications  are  inadequate  for  a  given  position  is 
not  always  the  person  who  first  recognizes  this  inadequacy,  and  when 
he  is  left  out  he  sees  no  reason  for  being  passed  over,  except  a  deter- 
mination on  the  part  of  the  authorities  unjustly  to  discriminate  against 
him.  In  making  appointments,  however,  by  tlie  method  adopted  of 
giving  authority  to  various  in.^titutions  and  a  few  officers  of  the  educa- 
tional system  of  the  United  States,  each  to  select  a  limited  number, 
the  authority  to  appoint  was  very  widely  distributed,  it  l)eing  under- 
stood, of  course,  that  the  general  superintendent  of  education  retained 
also  large  authority  to  select  and  appoint.  No  discrimination  beyond 
a  discrimination  on  the  basis  of  proper  qualifications  is  known  to  the 
government,  excoi)t  that  in  certain  instances  special  etforts  were  made 
to  secure  teachers  of  the  same,  religious  faith  as  the  ])ulk  of  the  inhal)- 
itants  of  the  islands,  l)ut  in  spite  of  these  eflorts  tiie  persons  having 
the  power  of  appointment  found  it  im})ossible  to  secure  as  large  a  num- 
ber of  qualified  persons  of  this  class  as  they  were  willing  to  appoint. 

THE    FILIPINO   TEACHERS. 

While  the  American  teachers  have  already  rendered  very  important 
services  in  beginning  the  work  of  public  instruction  in  accordance 


404  REPORTS    OF    THE    CIVIL    (lOVKHNMENT 

^Yith  Amoricim  idoas,  it  is  nevortlioloss  tnw  that  the  ultiniato  character 
of  the  public  instruction  in  the  I'hilippines  nuist  depend  on  the  char- 
acter of  the  Filipino  teachers  which  it  will  ))e  possible  to  develop. 
Tiidcr  the  old  regime  the  salaries  of  Filipinos  were  insigniticant,  and 
at  present  they  average  about  ^6  a  month  for  women  and  $8  a  month 
for  men,  in  nioney  of  the  United  States.  The  upper  limit  of  these 
salaries  actually  paid  is  about  $!^5  a  month,  while  the  lower  limit  is 
about  $1,  which  in  some  instances  is  for  long  periods  withheld.  It  has 
happened  that  a  teacher  receiving  a  salary  of  $l().50a  month  has  hired 
a  substitute  for  §4.50,  and  has  lived  as  an  independent  gentleman  on 
the  remaining  ^12.  The  estal)lishment  of  the  native  constabulary,  with 
salaries  ranging  from  $8.75  to  $18.75,  when  the  ability  to  read  and 
write  is  required  only  of  those  receiving  the  highest  salary,  has  natur- 
ally aroused  more  or  less  of  discontent  among  the  Filipino  teachers 
and  led  them  to  inquire  why  a  government  which  can  pay  its  police 
sergeants  the  munificent  salary  of  $18.75  is  not  able  to  pay  its  teachers 
with  equal  liberality.  This  unfavorable  contrast  may  also  be  made  in 
other  cases,  for  the  Filipino  teachers  are  paid  less  than  the  drivers  and 
cooks,  and  often  less  than  ordinary  laborers. 

^^4'  In  addition  to  the  fact  that  the  salaries  of  the  Filipino  teachers  are 
extremely  low,  there  is  the  other  fact  that  there  is  sometimes  great 
uncertainty  al)out  the  payment.  By  law  the  division  superintendent 
is  authorized  to  appoint  the  Filipino  teachers  in  the  municipalities  and 
some  of  the  municipalities  have  raised  the  question  as  to  whether  they 
were  expected  to  pa}'^  the  salaries  of  teachers  appointed  })y  officers  not 
belonging  to  the  municipality.  "They  argued  that  since  the  govern- 
ment appoints  the  teacher  and  tixes  his  salary  the  government  expected 
to  pay  that  salary.  Others,  when  instructed  to  pay  the  salary,  have 
assumed  the  right  to  fix  it  and  also  to  appoint  the  teacher."  Even 
where  there  is  no  question  about  the  obligation  to  pay,  the  payments 
are  often  made  irregularly,  sometimes  in  other  articles  than  money, 
sometimes  at  long  intervals,  and  sometimes  not  at  all.  It  is  clear  that 
under  a  system  like  this  the  Filipino  teacher  can  never  become  a  very 
effective  factor  in  the  development  of  public  enlightenment;  but  as  the 
bulk  of  the  population  must  in  the  long  run  rely  upon  the  Filipino 
teacher,  either  the  municipalities  must  rise  to  a  proper  recognition  of 
their  obligations  toward  the  pu])lic  school  teacher  or  a  more  satisfac- 
tory arrangement  for  their  payment  be  made  through  some  other 
authority.  It  may  also  ))e  stated  that  some  means  nuist  be  taken  to 
inspire  the  Filipino  teacher  with  a  sense  of  duty  Avith  respect  to  the 
work  to  which  he  is  called.  A  letter  from  an  American  teacher  in 
Panay,  referring  to  wdiat  happened  to  his  school  during  the  few  days 
of  enforced  absence  b3Mllness,  illustrates  what  is  meant  in  this  connec- 
tion. 

^"  When  I  returned  on  Wednesday  morning,"  he  writes,  "only  2  of 
m}'  6  teachers  w^ere  present  and  my  attendance  had  dropped  from  140, 
when  1  left,  to  25  when  I  returned.  During-  my  six  days'  absence 
scarcely  any  woi-k  had  been  done.  Thursday  and  Friday  there  was  a 
big  fiesta  here,  and  eonsequenth'  it  was  impossi  le  to  hold  school.  This 
morning  I  attempted  to  collect  the  pupils  and  get  started  once  more, 
I  find  my  teachers  are  fully  as  l)adly  demoralized  as  I  expected  they 
would  be.  Maria  Garingales  was  the  only  one  that  came  on  time; 
Maria  Girago  came  half  an  hour  late  and  then  w^anted  to  get  excused 
for  the  day.     Francisco  Girado  came  in  an  hour  and  a  half  late,  and 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  405 

then  only  because  I  sent  for  him.  Norberto  Girado  was  at  his  home 
asleep  and  would  not  come  at  all.  although  I  sent  for  him  twice.  He  did 
not  come  to  the  school,  but  went  to  the  cock  fight  instead,  and  as  there  is 
another  cock  fight  to-morrow  I  have  no  reason  to  expect  him  at  that 
time.  All  of  my  teachers,  with  the  exception  of  Maria  Garingales, 
who  is  always  on  time,  haye  of  late  grown  very  slack  in  regard  to  their 
attendance.  Norberto  is  an  old  offender  and  does  not  seem  to  improve. 
I  have  done  everything  in  my  power  to  impress  upon  him  some  sense 
of  his  obligation  as  a  teacher,  but  during  this  month  it  is  safe  to  say 
that  he  has  been  absent  half  the  time." 

This  is  probably  a  somewhat  extreme  case,  but  it  illustrates  the  fact 
that  before  anything  in  the  way  of  social  reform  can  be  accomplished 
through  the  people  themselves  there  must  be  breathed  into  them  the 
spirit  of  a  new  life.  They  must  be  led  to  feel  a  sense  of  moral  obliga- 
tion in  their  public  work. 

^   ]MANILA    NORMAL   SCHOOL. 

During  the  past  year  increased  attention  has  been  given  to  plans 
looking  to  the  development  of  facilities  for  preparing  Filipinos  for 
more  efficient  work  as  teachers.  These  facilities  have  been  furnished 
b}'  the  Manila  normal  school,  the  branch  of  the  Manila  normal  school 
organized  for  the  training  of  Filipino  teachers  actually  engaged  in  the 
work  of  instruction  in  Manila,  in  the  provisions  of  the  provincial 
schools  for  normal  work,  and  in  the  various  normal  institutes  held  dur- 
ing the  sununer  vacation.  The  Manila-normal  school  is,  perhaps,  the 
most  important  single  institution  which  has  been  organized  within  the 
bui'eau  of  education.  Its  forerunner  was  the  preliminary  school 
organized  in  Manila  while  Dr.  David  P.  Barrows  was  cit}'  superintend- 
ent of  schools.  In  its  present  form  the  Manila  normal  school  was 
organized  by  Dr.  E.  B.  Bryan,  its  present  principal.  In  its  beginning 
its  sessions  were  held  in  the  building  known  as  the  "Escuela  Munici- 
pal," in  the  Walled  City.  On  account  of  the  occupancv  of  th«>  build- 
ing l)y  the  Manila  grammar  school  in  the  forenoon,  the  classes  of  the 
normal  school  Avere  assembled  onh'  in  the  afternoon.  -The  curi'iculum 
covered  five  principal  subjects — English,  geography,  American  history, 
arithmetic,  and  science — which  were  taught  on  fi\e  days  in  the  week, 
and  two  subordinate  subjects,  uuisic,  and  art.  The  former  was  taught 
on  two  da3's  and  the  latter  on  three  days  in  the  week.  Prior  to  rJanu- 
ary  1,  1902,  there  were  310  pupils  enrolled,  of  whom  292  were  young 
men  and  18  were  young  women.  Here,  as  in  all  the  schools  of  the 
archipelago,  it  Avas  at  first  difiicult  to  secure  regular  and  continued 
attcudunce,  so  that  with  a  total  enrollment  of  310  there  was  an  average 
enrollment  of  only  220  and  an  avt'ragc  attendance  of  202.  The  i)upils 
in  the  .school  cauH^from  24  provinces  and  were  taught  by  11  American 
teachers. 

The  limited  quarters  in  the  numicipal  school  building,  and  the  fact 
that  sessions  could  he  held  oidy  in  the  afternoon,  made  it  very  clear 
that  new  quarters  must  be  obtained  at  a  very  early  date.  On  the 
advice  of  the  secretary  of  public  instruction,  the  Commission  ofi'ered 
to  purchase  the  t)uilding  belonging  to  the  Assumptionist  Sisters,  and 
previously  occupied  l)y  the  army  as  the  second  reserve  hospital.  The 
i»uihling  was  constructed  for  a  girls'  school  which  had  ])een  maintained 
here  by  the  Assumptionist  Sisters  with  a  subsidy'  from  the  Spanish 


40(>  REPORTS    OF    TIIK    CIVfL    (lOVKRNMENT 

GovornuKMit.  At  the  time  tho  oii'cr  to  purchase  was  inado  tho  Sisters 
wore  in  Europe  aiul  uudeeided  as  to  whether  or  uot  they  would  return 
to  iMauila.  The  otl'er  was  therefore  refused.  No  other  huildinj^ 
suitable  for  the  work  of  the  school  was  known  to  be  available,  and  it 
was  not  thought  desirable  to  wait  for  the  construction  of  such  a 
building-.  The  secretary  of  publii^  instruction  then  recommended  that 
certain  buildings  whichhad  been  erected  for  the  exposition  in  189(3  be 
repaired  and  set  apart  for  the  use  of  the  Manila  norniiil  school.  This 
gave  the  school  quarters  at  least  tempoi-arily  adequatt^  and  enabled  the 
sessions  to  be  held  during  both  the  forenoon  and  the  afternoon.  In 
view  of  the  fact  that  the  pupils  of  this  school  came  largely  from  the 
provinces  its  proper  work  was  hindered  at  the  opening  of  the  present 
school  year  in  June  by  the  prevalence  of  cholera  in  Manila  and  the 
surrounding  provinces.  Most  of  the  pupils  were  reluctant  to  leave 
their  homes,  and  those  who  were  willing  to  do  so  found  great  difficulty 
in  traveling  on  account  of  the  rigid  quarantine  restrictions;  but  in 
spite  of  these  hindrances,  which  have  in  some  measure  lasted  until  the 
present  time,  380  pupils  enrolled  in  the  early  months  of  the  school 
year,  with  a  prospect  that  with  the  passing-  of  cholera  the  number  in 
attendance  would  reach  500.  In  the  course  of  time  the  relative 
number  of  young  women  has  increased.  Of  the  270  pupils  enrolled 
at  the  end  of  August  70  were  young  women. 

In  its  new  quarters  the  school  has  been  enlarged  and  the  scope  of 
the  instruction  widened.  Fourteen  American  teachers  are  now  engaged 
and  there  has  been  a  corresponding-  increase  in  the  number  of  subjects 
taught. 

teachers'  college. 

Prior  to  August,  1902,  the  schools  of  Manila  held  two  sessions  daily, 
one  in  the  morning-  and  one  in  the  afternoon.  The  last  hour  of  the 
morning  session  was  set  apart  for  the  instruction  of  the  Filipino 
teachers.  The  instruction  was  given  by  the  American  teachers  in  the 
schoolhouses  where  they  were  severally  employed.  Given  in  small 
groups,  without  systematic  organization  or  effective  supervision,  its 
quality  depended  largely  on  the  personality  of  the  American  teachers. 
Where  the  teacher  was  W-ong  and  methodical  the  work  ^yas  orderly 
and  effective;  where  the  teacher  was  weak  and  lacking  in  zeal  the 
instruction  was  fragmentary  and  unsystematic;  l)ut  as  the  purpose  of 
this  early  instruction  of  the  Filipino  teachers  was  merely  to  assist  them 
in  acquiring  a  knowledge  of  the  P^nglish  language,  the  method  adopted, 
securing  close  relations  between  an  American  teacher  and  a  small 
group  of  Filipino  teachers,  was  productive  of  more  or  less  satisfactory 
results.  In  the  coui'se  of  time,  however,  it  became  necessary  that  the 
Filipino  teachers  should  be  subject  to  a  more  regular  discipline  and 
more  systematic  instruction.  They  needed  instruction  not  only  in  the 
English  language,  but  also  in  the"  various  subjects  that  entered  into 
the  cui-riculum  of  the  primary  school.  This  became  manifest  at  the 
end  of  the  school  year  in  1901,  when  a  consideral^le  number  of 
Filipino  teachers  of  Manila  had  to  be  dismissed  on  account  of  their 
inefficiency.  Some  of  these  were  too  old  to  acquire  a  useful  mastery 
of  a  new  language,  and  some  were  indifferent  and  not  in  sympathy 
with  the  purposes  of  the  government  as  manifested  in  its  system  of 
public  instruction.  In  order  to  obviate  the  necessity  of  a  subsequent 
resort  to  this  severe  method  of  curing  the  inefficiency  of  the  city 


OF    THE    PHILTTPTNK    ISLANDS.   1900-1903.  407 

schools,  it  was  determined  that  the  sessions  of  the  schools  for  teaching 
the  children  should  be  continued  throughout  the  forenoon,  that  the 
afternoon  session  should  be  abandoned,  and  that  all  the  Filipino 
teachers  should  be- assembled  at  one  place  and  organized  into  a  normal 
school  to  be  held  between  3  and  5  o'clock  in  the  afternoon. 

Under  this  plan  the  150  Filipino  teachers  engaged  in  the  public  schools 
of  Manila  are  assembled  for  live  days  in  the  week  in  the  building  in 
the  Walled  City  known  as  the  "  Escuela  Municipal."  The}^  are  divided 
into  small  sections  and  are  taught  by  the  American  teachers  regularly 
assigned  to  the  Manila  schools,  each  section  meeting  for  three  periods 
and  receiving  instruction  in  three  different  subjects  in  the  two  hours 
of  the  session.  The  obligation  which  was  imposed  on  the  Filipino 
teachers  to  attend  the  afternoon  session  of  this  branch  of  the  Manila 
normal  school  was  at  first  thought  by  them  to  be  a  hardship,  on  account 
of  the  difficulties  and  expense  of  securing  the  requisite  transportation, 
but  when  it  was  explained  to  them  that  this  opportunity  was  offered 
by  the  government  in  order  to  enable  them  to  increase  their  fitness  for 
their  work,  and  thus  make  them  worthy  to  be  continued  in  their  posi- 
tions, they  saw  clearly  that  what  was  required  of  them  was  for  their 
advantage.  In  bringing  the  instruction  of  the  children  into  a  single 
period  of  four  hours  in  the  morning,  with  two  brief  recesses,  the  cooler 
half  of  the  day  was  utilized  for  this  purpose  and  they  were  released 
from  the  necessity  of  returning  to  school  in  the  hotter  hours  of  the 
afternoon.  These  advantages'  were  more  than  sufficient  to  balance 
whatever  disadvantages  may  have  arisen  from  establishing  one  session 
of  four  hours  in  place  of  two  shorter  sessions  separated  by  a  midday 
intermission.  This  plan  was  carried  into  effect  on  August  4.  Legally 
this  school  is  a  branch  of  the  Manila  normal  school,  and  has  been  con- 
ducted under  the  general  direction  of  Dr.  E.  B.  Bryan,  principal  of 
that  school.  Much  of  its  noteworthy  success,  however,  is  due  to  the 
tact  and  energy  of  the  vice-principal*,  Mr.  E.  W.  Oliver,  who  has  been 
in  actual  charge  of  the  institution  from  its  beginning. 


y 


PROVINCIAL    SCHOOLS   OF   SECONDARY   INSTRUCTION. 


An  important  step  in  the  development  of  the  system  of  puldic  instruc- 
tion in  the  Philippines  was  the  estal)lishment  and  organization  of  the 
provincial  schools  of  secondary  instruction.  The  law  authorizing  such 
schools  was  enacted  March  T,'ll>02.  Prior  to  this  date  the  bureau  of 
education  had  been  chiefly  concerned  with  the  organization  of  ])rimary 
schools.  As  a  consequence,  many  of  the  moi-e  advanced  pupils  in  these 
schools,  who  had  been  taught  English,  })egan  to  entertain  serious  doubts 
respecting  the  possibility  of  continuing  their  studies  in  English  in 
schools  of  a  higher  gi'acle,  and  some  of  them  thought  it  advisable  to 
rcsnme  their  studies  of  Spanish  in  order  that  they  niight  be  jn-cpared 
to  enter  the  Spanish  schools  of  secondary  instruction.  This  was  par- 
ticularly true  in  Manila,  where  there  were  sev(U-al  secondary  schools 
which  were  maintained  under  the  authority  of  the  church.  These  were 
the  only  important  schools  of  this  grade  that  existed  in  (he  archipelago 
at  the  beginning  of  the  Anieri(;an  occupation,  and  oidy  a  comparatively 
small  part  of  tlie  inhabitants  of  the  provinces  found  th(>mselves  in  cir- 
cumstances which  permitted  them  to  give  their  sons  the  advantages  of 
these  schools.  It  was  advisable,  therefore,  to  meet  as  early  as  possible 
the  strong  demand  in  the  provinces  for  schools  to  which  children  could 


408  RKPOBTS    OF    THE    CTVTL    OOVKRNMENT 

bo  udiuittod  on  ooniplotion  of  their  primai'v  instriu-lion.  With  the 
onac'tnuMit  of  the  hiw  of  March  7  the  o-ener<il  i)hui  of  the  system  of 
publii-  instruction  heo-an  to  assume  real  form.  This  phin  i)rovidod  that 
in  the  course  of  time  the  primary  schools  should  exist  under  municipal 
authority,  the  secondary  schools  uikder  provincial  authority,  and  hioher 
instruction,  tooether  with  whatever  special  schools  mi^ht  be  esta})lished, 
should  be  supported  directly  by  the  insular  government.  Schools  of 
secondary  instruction  were  thus  to  become  the  peculiar  charge  of  the 
provincial  oovernment.  The  provincial  board  was  authorized  to  pro- 
vide, l>v  construction  or  purchase  or  rentinu-,  such  school  building-  or 
building's  in  the  province  as  in  the  opinion  of  the  board  might  be  nec- 
essary, to  be  used  for  the  free  secondary  instruction  of  pupils  resident 
in  the  province. 

In  view  of  the  rude  condition  of  the  provincial  population  with 
respect  to  education  and  in  order  to  provide  an  efl'ective  and  simple 
organization  it  was  determined  that  the  secondary  schools  in  the  prov- 
inces should  cover  the  widest  range  of  subjects  that  it  might  be  found 
necessaiy  to  teach.  It  was  recognized  that  these  provincial  schools 
would  furnish  the  highest  grade  of  instruction  that  would  be  demanded 
bj^  any  considera])le  number  of  residents  of  the  provinces;  that  they 
would  become  in  the  course  of  time  the  colleges  for  the  people;  and 
that  the  few  who  might  demand  such  instruction  as  is  given  in  a  uni- 
versity would  seek  that  instruction  either  in  Manila  or  in  the  United 
States.  It  was,  therefore,  provided  by  law  that  the  secondary  instruc- 
tion given  in  the  provincial  schools  might  include,  in  addition  to 
academic  and  (commercial  subjects,  manual  training,  instruction  in  agri- 
culture, and  normal-school  instruction.  While  it  is  expected  that 
ultimately  the  expenses  of  equipping  and  maintaining  the  provincial 
schools  Avill  be  borne  by  the  provinces,  it  is  provided  that  for  the  time 
being  the  salaries  of  tlie  teachers  in  these  schools  shall  be  paid  from 
the  insular  treasury.  In  their  establishment  and  conduct  they  are 
subject  to  the  supervision  of  the  division  superintendents  and  the  gen- 
eral superintendent  of  education.  When,  however,  it  shall  be  deter- 
mined by  law  that  the  condition  of  finances  of  a  pi'ovince  will  justify 
for  the  future  the  payment  of  the  salaries  of  teachers  and  all  the 
expenses  of  supplies  and  equipment  for  secondary  schools  for  the  pro- 
vincial treasury,  such  salaries  and  expenses  shall  be  met  by  the  several 
provinces.  It  was  recognized  in  providing  for  these  schools  that 
certain  provinces  might  not  for  a  num])er  of  years  be  prepared  to 
estal)lish  schools  for  secondary  instruction,  and  it  was  provided  that 
the  provincial  board  of  any  such  province  might  appropriate  provin- 
cial funds  for  the  payment  of  the  tuition  in  a  provincial  school  in  any 
other  province  or  in  the  city  of  Manila  of  such  pupils  as  might  wish 
to  enter  such  provincial  school. 

Prior  to  September  1,  1902,  28  provincial  schools  had  been  estab- 
lished in  the  principal  towns  of  the  archipelago,  and  the  work  of 
organizing  such  schools  in  11  other  towns  was  in  progress.  While 
English  will  continue  to  be  the  language  in  which  the  instruction  in 
these  schools  is  given,  an  opportunity  will  ])c  ottered  to  such  persons  as 
desire  it,  for  business  or  social  reasons,  to  acquire  also  a  knowledge  of 
Spanish.  By  reason  of  the  large  part  which  the  Spaniards  have  played 
in  the  history  of  the  Philippines  and  the  fact  that  the  principal  sources 
of  our  knowledge  respecting  these  islands  are  in  Spanish  it  will  be 
desirable  for  many  years  to  come  that  Filipino  scholars  and  men  of 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  409 

special  cultivation  shall,  in  addition  to  their  knowledge  of  English, 
have  also  such  command  of  Spanish  as  will  make  accessible  to  them 
the  history  and  information  relating  to  their  early  institutions.  This 
language  and  its  literature,  therefore,  will  constitute  one  of  the  subor- 
dinate suljjects  in  the  curriculum  of  the  provincial  school.  By  author- 
izing the  broadest  possible  curriculum  and  by  bringing  instruction  in 
all  of  the  subjects  mentioned  under  a  single  organization  it  is  expected 
that  those  who  have  these  schools  in  charge  will  adapt  the  work  in 
them  to  the  peculiar  conditions  of  the  people  in  the  several  provinces 
where  they  are  established.  The  wide  diversity  in  the  soil,  the  climate, 
and  the  character  of  the  inhabitants  make  necessary  different  kinds  of 
instruction  for  different  parts  of  the  islands,  and  the  organization  of 
provincial  schools  makes  it  possible  for  the  main  work  of  the  school  to 
be  adapted  to  the  various  needs  of  the  inhabitants.  In  some  instances, 
moreover,  in  order  to  make  it  possible  for  students  from  all  parts  of 
the  province  to  attend  the  provincial  school,  it  has  been  found  neces- 
sary to  make  provision  for  furnishing  them  at  reasonable  rates  with 
board  and  lodging.  This  is  rendered  especially  necessary  in  some 
places  by  the  extensive  destruction  of  houses  during  the  rebellion. 
In  some  parts  of  the  islands  the  people  had  heard  that  Napoleon's 
great  army  was  defeated  in  its  undertaking  against  Russia  by  the 
burning  of  Moscow,  and  burned  some  of  their  principal  towns  as  a 
means  of  checking  the  advance  of  the  Americans.  They  were  sur- 
prised to  find  that  this  means  was  not  effective,  that  the  Americans 
could  sleep  out  of  doors,  and  that  they  brought  their  own  food  with 
them.  This  useless  destruction  of  buildings  has  left  many  important 
towns  without  adequate  accommodations  either  for  the  offices  of  the 
government  or  for  the  schools.  This  limitation  of  quarters  imposes 
upon  some  of  the  schools  the  necessity  of  providing  quarters  for  at 
least  a  certain  part  of  the  pupils,  and  this  bringing  together  boys  who 
are  prepared  to  enter  upon  their  secondary  studies  and  subjecting 
them  to  a  rational  discipline  is  likely  to  have  a  beneficial  effect  both 
gn  their  character  and  their  attainments. 

V      NORMAL   INSTITUTES. 

The  normal  instruction  in  the  provincial  schools  is  designed  to  be  so 
arranged  that  the  pupils  who  have  completed  two  years'  work  in  these 
schools  may  take  the  last  two  years  of  their  course  in  the  Manila  nor- 
mal school.^  Thus  the  pupils  from  the  provinces  will  be  al)le  to  spend 
half  of  the  four  years'  course  in  the  provincial  school  atid  half  in  the 
Manila  normal  school.  This  Avill  enable  all  who  desire  it  to  have  the 
prestige  of  graduating  fi-om  the  school  which  constitutes  the  central 
feature  of  the  system  of  noi'mal  instruction. 

Anoth(>r  form  of  noi-mal  instruction  is  that  which  has  been  given  at 
normal  institutes  held  during  the  long  vacation.  While  the  work 
which  has  been  done  by  the  American  teachers  in  one  hour  a  day 
devoted  to  the  insti-uction  of  individual  or  little  groups  <)l'  Filipino 
teachers  has  produced  excellent  results,  it  has  been  found  in  tli(>  pn>v;- 
inccs,  as  well  as  in  Manila,  that  it  was  desirable  to  assemble  t,lH>,  Fili- 
pino teachers  in  large  bodies  and  to  give  them  more  systematic  instruc- 
tion and  discipline  than  was  ])ossible  scattered  in  the  various  pueblos 
and  barrios  throughout  the  provinces.  In  Manila  it  has  been  found 
possible   to   assemble    the    Filipino    teachers   in    the   branch   of  the 


410  REPORTS    OF    THK    CIVIL    GOVERNMENT 

Manila  normal  jsohool  and  to  give  them  instruction  durinj^  the  after- 
noon of  the  days  on  which  they  are  engaged  during  the  morning  in 
instructing  the  children  in  their  rcspectiv^e  schools,  but,  owing  to 
the  iixct  that  in  the  provinces  the  Filipino  teachers  are  scattered 
over  wide  territory,  it  has  not  been  found  possible  to  assemble  them 
except  diirinc^  the  long  vacation.  To  meet  this  difficulty  the  vaca- 
tion normal  mstitutes  have  been  established.  The  first  experiments 
with  the  vacation  normal  school  were  made  in  Manila,  Iba,  and  Laoag 
in  April  and  May,  1!>01.  The  work  of  these  three  schools  in  1901  was 
found  to  be  so  satisfactory  that  during  the  vacation  of  the  present 
3'ear  a  large  number  of  such  schools  was  organized,  iVlthough  the 
long  vacation  generall}'^  occurs  in  April,  May,  and  June,  it  is  some- 
times placed  a  little  earlier  and  sometimes  a  little  later,  as  may  be 
demanded  by  the  different  conditions  in  different  parts  of  the  archi- 
pelago. It  lasts  twelve  wrecks,  at  least  four  weeks  of  which  have  been 
devoted  in  most  of  the  provinces  to  institutes  for  the  instruction  of 
Filipino  teachers,  the  plan  involving  one  such  institute  for  each 
province.  Owing  to  the  difficulties  of  transportation  it  has  been  found 
impracticable  to  gather  together  the  teachers  f  I'om  a  territory  larger 
than  the  province.  Attempts  to  assemble  all  the  teachers  of  a  division 
under  the  jurisdiction  of  a  division  superintendent  have  failed  on  this 
account.  The  three  provinces  of  Iloilo,  Capiz,  and  Antique  made  up 
the  earlier  school  division  of  Panaj',  but  only  very  imperfect  and  dila- 
tory means  of  communication  exist  between  them.  For  this  reason  a 
vacation  normal  institute  was  held  at  the  capitol  of  each  of  these 
provinces  instead  of  a  large  institute,  which,  it  was  hoped,  might 
embrace  all  the  teachers  of  the  division.  There  appears  to  have  been 
some  good  reason  which  induced  the  Spaniards  to  fix  the  boundaries 
of  the  provinces  as  we  find  them.  Where  these  reasons  are  natural 
geographical  demarkations,  they  are  at  present,  as  they  always  have 
been,  magnified  by  the  lack  of  facilities  for  communication.  The 
present  government  has  seen  lit  to  maintain  the  lines  of  separation 
which  the  Spaniards  recognized.  This  was  done  in  the  new  organiza- 
tion of  provinces,  but  these  lines  were  at  first  ignored  in  the  establish- 
ment of  school  divisions.  Under  the  law  enacted  October  8,  1902,  the 
separate  provinces,  with  a  few  exceptions,  appear  as  school  divisions. 
Under  this  new  order  of  things  the  vacation  institute  in  each  province 
will  be  directly  under  the  supervision  of  a  division  superintendent. 
The  success  of  these  institutes  during  the  summer  vacation  of  this  year 
was  interfered  with  by  the  presence  of  cholera  and  the  consequent 
difficulties  of  travel.  There  were,  however,  320  American  teachers 
engaged  in  this  instruction,  with  an  attendance  of  4,389  pupils,  and  an 
average  attendance  of  3,980. 

\/  To  supplement  the  very  imperfect  education  of  the  Filipino  teachers 
in  the  provinces  the  instruction  given  in  the  normal  institutes  embraces 
the  subjects  usually  taught  in  the  primary  schools.  These  subjects 
were  used  not  merely  to  give  the  Filipino  teachers  the  knowledge  they 
were  expected  to  impart,  but  also  to  enable  the  American  teacher  to 
illustrate  the  method  in  which  the  subject-matter  might  be  properly 
presented.  The  Filipino  teachers  have  encountered  many  difficulties 
in  attending  these  institutes,  due  chiefly  to  their  small  salaries  and,  in 
many  instances,  to  the  failure  on  the  part  of  the  municipal  authorities 
to  pay  what  was  due  them.  In  this  transition  period  the  lot  of  Filipino 
teachers  is  not  a  fortunate  one.     Formerly  they  received  low  salaries, 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  411 

but  they  were  permitted  to  require  contributions  from  their  pupils. 
Now  many  of  their  salaries  have  been  somewhat  increased,  but  it  is 
expected  that  they  will  collect  no  more  contributions.  The  increases, 
however,  which  in  many  cases  they  have  received  are  not  equal  to  the 
amounts  the}^  were  accustomed  to  get  from  the  pupils.  Attending  a 
normal  institute,  therefore,  when  this  must  be  done  at  great  personal 
sacrifice,  as  it  often  happens,  shows  a  certain  amount  of  professional 
ambition  on  the  part  of  the  Filipino  teachers.  This  state  of  things 
will  be  remedied  later  when  the  graduates  of  the  Manila  normal  school 
return  to  their  provinces  and  by  their  more  enlightened  services  justify 
higher  salaries. 

MUNICIPAL    SUPPORT   OF   NORMAL    SCHOOL   STUDENTS. 

There  are  many  small  towns  and  villages  in  the  interior  of  the  islands 
which  arc  too  poor  to  pay  Filipino  teachers  sufficient  salaries  to  induce 
those  of  proper  attainments  to  come  from  other  larger  towns  to 
engage  in  teaching,  and  which  have  among  the  inhabitants  no  persons 
of  sufficient  attainments  to  warrant  their  employment  in  the  schools. 
These  places  are  not  of  sufficient  importance  to  make  it  wise  for  the 
government  to  support  in  them  American  teachers.  The  inhabitants 
of  these  small  interior  towns  or  villages  are,  therefore,  without  an}" 
means  for  bringing  themselves  into  connection  with  the  educational 
plans  and  purposes  of  the  government  or  of  acquiring  knowledge  of 
the  kind  of  civilization  which  the  Americans  are  hoping  to  develop  in 
the  Philippines.  The  difficulty  here  presented  is  a  real  one,  for  it  is 
not  desirable  that  so  large  a  part  of  the  population  as  is  represented 
by  these  small  towns  should  be  left  for  long  without  being  brought, 
either  directly  or  indirecth',  under  the  influence  of  American  ideas. 
To  remedy  the  existing  state  of  things  authority  was  given  by  act  No. 
446  to  the  municipal  council  to  pay  out  of  any  funds  in  the  municipal 
treasury  not  otherwise  appropriated  40  pesos  monthly  toward  the  sup- 
port of  one  3"oung  man  and  one  young  woman  while  attending  a  public 
provincial  or  normal  school.  It  is  understood  })y  the  municipality 
furnishing  the  support  authorized  b}'  this  act  that  on  returning  from 
the  normal  school  the  persons  in  whose  behalf  these  contributions  from 
the  municipal  treasury  have  been  made  should  become  teachers  in 
their  several  municipalities  whenever  their  services  might  be  required. 
In  order  to  secure  the  attendance  from  these  small  towns  of  persons 
properly  equipped  to  carry  on  the  work  of  the  normal  school  and  to 
give  promise  of  being  effective  teachers,  it  was  provided  that  the 
appointment  should  be  in  the  hands  of  the  municipal  councils,  but  that 
the  principal  of  the  provincial  or  the  normal  school  should  examine 
these  persons  at  the  end  of  their  first  month  of  attendance.  If  the}^ 
passed  this  examination  satisfactorily,  they  might  be  retained  as  stu- 
dents, receiving  the  assistance  provided  from  the  numicipal  treasuiy, 
but  if  they  failed  to  pass  creditably  this  examination  they  snould  be  sent 
back  to  their  pueblo,  and  other  more  i)romising  persons  be  appointed  in 
their  stead.  Before  the  passage  of  this  act  information  had  been 
received  from  various  small  towns  stating  their  desire  to  have  the 
opportunity  thus  presented  for  providing  themselves  with  properly 
instructed  teachers.  This  act  was  passed  so  recently  that  as  yet  no 
information  is  at  hand  concerning  action  taken  under  it. 


412  KKPOUTS    (»K    'I'HK    CIVIL    (ioVKKNMKNT 

SENDINC!    FILIPINO    STUDKNTS    TO    AMERICA. 

The  oi-eat  need  of  properly  trained  Filipino  teachers  has  made  of 
]ianinu)uiit  liuportaiicc  the  problem  of  securing  them.  As  already 
indicated,  tiie  nt)rmal  school  of  Manila,  with  the  l)ranch  organized  for 
instructiuL;-  the  Filii)ino  teachers  of  the  city,  the  prov^incial  schools, 
and  normal  institutes  in  the  several  divisions  arc  at  present  devoted  to 
the  preparation  of  Filipinos  for  work  in  the  pu))lic  schools.  In  addi- 
tion to  this  it  would  he  Avell  for  the  government  to  undertake  to  send 
to  America  and  maintain  in  certain  normal  schools  there  a  consider- 
able niunber  of  Filipinos  who  give  evidence  of  good  ability  and  the 
other  (lualificatioiKS  requisite  for  a  teacher.  The  academic  subjects  in 
which  they  might  receive  instruction  in  America  can  very  well  be 
taught  them  in  the  Philippines,  but,  in  addition  to  this  formal  instruc- 
tion, it  is  impossible  to  provide  here  a  substitute  for  the  object  lessons 
in  American  civilization  which  they  will  receive  in  spending  three  or 
four  3Mnirs  in  different  parts  of  the  United  States.  The  most  valuable 
lessons  of  civilization  can  not  1)0  taught  by  precept,  but  only  by  exam- 
ple. There  will  l)e  no  difficulty  in  obtaining  free  tuition  in  the  schools 
of  the  required  standing,  so  that  the  expense  to  be  borne  by  the  gov- 
ernment would  be  confined  to  the  transportation  and  maintenance  of 
the  students  for  the  time  being.  The  services  which  these  young  per- 
sons would  render  on  their  return  furnish  ample  justification  for  the 
expenditure  on  the  part  of  the  insular  government. 

LANGUAGE  OF  THE  SCHOOLS.   / 

Fuller  knowledge  of  the  condition  of  the  Filipinos  with  respect  to 
language  seems  to  justify  the  decision  formed  in  the  beginning  to  make 
English  the  language  of  the  schools.  The  great  majority  of  the  Fili- 
pinos are  ignorant  of  Spanish.  This  is  particularly  true  of  the  children. 
Those  who  profess  to  be  al)le  to  use  this  language  have  but  an  imperfect 
command  of  it.  The  native  languages  are  numerous  and  so  unlike  that 
no  one  of  them  can  be  employed  as  the  common  medium  of  communi- 
cation. There  are  no  books  in  any  one  of  them  that  could  be  advanta- 
geously used  in  a  S3'stem  of  public  instruction.  The  few  newspapers 
that  are  printed  in  the  native  languages  do  not  furnish  all  the  intellectual 
guidance  or  stimulus  needed  by  the  inhabitants  of  the  islands  in  their 
aspirations  to  be  counted  among  civilized  peoples.  Of  such  papers 
there  are  only  two  in  Tagalog  and  two  in  Visayan,  but  none  in  any  of 
the  other  six  dialects  of  the  civilized  tribes.  Elementary  books  might 
have  been  prepared  and  printed  in  the  various  dialects  and  made  the 
basis  of  primary  instruction.  Pupils  having  passed  over  this  stage  of 
their  cultivation  by  this  means  would  have  found  only  a  barren  waste 
before  them.  There  is  no  great  advantage  in  learning  to  read  in  a 
language  which  offers  nothing  worth  reading  to  those  who  have  acquired 
the  art.  Children  educated  in  the  connnon  schools  with  only  such 
means  as  ma}^  be  provided  in  Tagalog  or  Bicol  have  still  practically  no 
access  to  sources  of  information  regarding  the  world.  The  limits  of 
the  province  remain  their  horizon.  They  are  shut  out  from  the  advan- 
tages enjoyed  by  their  more  fortunate  feriow-countr3nnen  who  have  had 
the  means  to  enable  them  to  accjuire  a  language  through  which  may  be 
derived  a  knowledge  of  civilized  society.  The  boy  who  grows  to  man- 
hood knowing  only  a  language  without  a  literature  finds  that  as  the  result 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  413 

of  his  training  in  school  he  has  not  the  means  for  increasing  his  knowl- 
edge, and  he  very  readily  falls  back  into  the  mental  darkness  of  the  semi- 
savage  state.  The  boj^  who  in  his  school  days  has  learned  the  language 
of  a  civilized  nation,  even  if  he  has  learned  nothing  else,  has  put  him- 
self en  rapport  with  civilization.  Aside  from  the  practical  circum- 
stances of  his  life,  it  makes  little  difference  whether  he  learns  English, 
French,  German,  or  Spanish,  l)ut  it  makes  a  great  deal  of  difference 
whether  he  learns  French  or  Tagalog,  English  or  Bicol.  The  one 
makes  him  a  citizen  of  the  world,  the  other  makes  him  a  citizen  of  a 
province  in  the  Philippine  Islands.  /  If  the  government  were  to  make 
the  local  dialects  the  media  of  school  instruction,  a  limited  number  of 
the  more  or  less  wealthy  and  influential  persons  would  use  the  facilities 
which  they  can  command  to  learn  English  for  the  sake  of  the  additional 
power  or  other  advantages  it  would  give  them  in  the  communities  to 
which  they  belong,  and  these  advantages  or  this  additional  power 
would  tend  to  perpetuate  the  prestige  and  domination  of  the  present 
oligarchic  element  in  Filipino  societ3^— ^he  knowledge  of  English 
wliich  the  public  schools  offer  to  the  youth  of  the  islands  will  contrib- 
ute materiall}^  to  the  emancipation  of  the  dependent  classes  and  to  the 
development  of  that  personal  independence  which  is  at  present  almost 
entirely  wanting  in  the  great  mass  of  the  people,  but  which  is  neces- 
sary to  the  maintenance  of  a  liberal  government.  It  may,  perhaps,  be 
diificult  to  change  the  fundamental  ideas  of  a  race,  but  it  is  not  very 
difficult,  under  proper  circumstances  rendered  permanent  for  a  consid- 
erable period,  for  children  of  one  nation  in  the  process  of  growth  to 
manhood  to  acquire  a  complete  practical  knowledge  of  the  language  of 
a  foreign  race.  The  use  of  a  vernacular  dialect  in  the  intimate  relations 
of  life  and  of  a  literary  language  in  the  commercial  and  public  affairs 
is  not  uncommon.  ^Practically  all  Filipinos  who  use  the  Spanish  lan- 
guage in  their  more  important  concerns  make  at  the  same  time  more 
or  less  use  of  one  or  another  of  the  local  dialects  ;'^et  under  Spanish 
rule  no  persistent  effort  was  made  to  give  the  great  bod}^  of  the  people 
opportunities  for  learning  Spanish,  and  in  many  instances  not  only  was 
no  encouragement  offered  to  the  acquisition  of  a  knowledge  of  this 
language,  but  positive  hindrances  were  put  in  the  way  of  acquiring  it. 
The  effort  of  the  Americans  to  give  to  the  Filipinos  a  knowledge  of 
English  is  in  marked  contrast  to  the  policy  carried  out  by  some  of  the 
European  nations  in  their  oriental  possessions.  This  effort  has  been 
met  by  considerable  enthusiasm  on  the  part  of  the  people  and,  con- 
sidering the  brief  period  during  which  schools  have  ))een  maintained, 
has  produced  noteworthy  results.  The  pupils  in  all  the  schools  where 
American  teachers  have  been  stationed  are  able  to  receive  instruction 
in  English,  and  in  the  larger  towns  most  of  the  Filipino  teachern  have 
acquired  sufficient  knowledge  of  English  to  enable  them  to  use  it  .suc- 
cessfully in  their  teaching.  The  150  Filipino  teachers  of  Manila,  as 
students  in  the  recently  estal)lished  branch  of  the  Manila  noi-mal  school, 
and  the  students  of  the  normal  school  itself  use  only  English  in  their 
recitations  and  reports. 

INDUSTRIAL    EDUCATION. 

The  progress  of  industrial  education  has  met,  and  will  probably 
contiiuie  to  meet,  with  certain  obstacles  in  the  Philippines.  The  people 
have  been  accustomed  under  their  earlier  instruction  to  regard  educa- 

23181—04 27 


414  REPORTS    OF    THE    CIVIL    (H)VERNMENT 

tion  as  a  means  of  putting  themselves  in  positions  where  manual  labor 
is  not  required.  Hitherto  the  Filipino  youth  has  looked  upon  the 
uistriiction  of  tlie  schools  as  a  means  of  preparing  him  to  become  a 
teacher,  a  civil  oliicer,  a  clerk,  a  lawyer,  a  physician,  or  a  priest.  That 
phase  of  education  through  which  the  young  man  expects  to  become  a 
skillful  workman  has  lain  almost  entirel}'  below  his  norizon.  This  is 
not  so  much  a  fault  of  his  race  as  it  is  a  fault  of  the  nation  under 
which  he  had  been  a  su])ject  for  three  centuries.  Spain  has  impressed 
upon  the  Filipinos^her  lack  of  appreciation  of  honest  work  and  that 
higher  form  of  skill  which  comes  from  systematic  education.  What- 
ever progress,  therefore,  is  made  in  industrial  education  must  be  made 
in  opposition  to  a^trong  prejudice;  but  this  prejudice  is  not  thought 
of  as  invincible.  'Tn  fact,  the  character  of  the  jDeople,  the  conditions  of 
their  life,  and  the  state  of  their  cultivation  make  it  comparatively  easy 
for  them  to  forget.  Standing  on  a  stage  of  civilization  distinctly  lower 
than  that  of  the  civilized  peoples  of  the  West,  the}^  are  likely  in  the 
course  of  a  short  time  to  imitate  the  members  of  that  nation  with  whom 
they  are  brought  into  closest  relations,  particularly  when  that  nation 
removes  all  obstacles  to  their  accepting  new  customs  and  habits.  /Jin 
the  course  of  time,  when  thej^  learn  more  about  America  and  come  to 
understand  the  marvelous  progress  which  has  there  been  made,  and 
that  the  wealth  of  the  production  of  that  country  rests  largely  on 
the  fact  that  America  is  a  nation  of  workers,  it  is  expected  that  their 
ancient  prejudices  will  fall  away  and  that  they  will  be  inclined  to 
accept,  with  certain  modifications,  American  ideas  with  respect  to 
industrial  affairs.  *  They  are  likely  to  be  encouraged  in  this  view  by 
the  introduction  of  machinery  and  various  appliances  by  which  the 
ratio  of  human  labor  to  product  is  diminished.  At  present  they  are 
almost  entirely  without  tools  in  any  way  suitable  to  the  cultivation  of 
the  soil,  and  the  only  cai-peuters'  tools  with  which  they  are  familiar 
are  those  used  b}^  the  Chinaman  and  which  were  antiquated  centuries 
a^o.  In  the  public  printing  ofhce,  with  its  fine  modern  machinery, 
they  are  gradually  adapting  themselves  to  the  new  condition,  ^n 
view  of  the  fact  that  Americans  who  receive  larger  salaries  than  they 
ever  hoped  to  receive  are  not  ashamed  to  work,  their  ancient  aversion 
to  labor  is  beginning  to  appear  somewhat  absurd.  One  of  the  delicate 
tasks  of  the  industrial  schools  is  to  break  down  this  ancient  prejudice, 
and  on  their  success  in  this  undertaking  depends  the  possibility  of 
introducing  and  carrying  to  successful  results  the  system  of  industrial 
education.  Hitherto  comparatively  little  has  hecn  accomplished.  This 
is  due  in  part  to  the  lack  of  appliances  and  in  part  perhaps  to  the 
difficulty  of  acquiring  a  knowledge  of  the  Filipino's  attitude  toward 
this  work  and  of  hitting  upon  the  proper  means  of  overcoming-  his 
prejudices.  At  the  same  time  numerous  requests  have  been  received 
Irom  the  provinces  asking  that  facilities  be  furnished  for  industrial 
instruction  in  some  of  the  simpler  forms  of  work;  and  to  furnish  a 
legal  basis  for  such  instruction  it  has  been  especially  provided  in  the 
provincial  schools  of  secondary  instruction  that  the  curriculum  should 
embrace  manual  training.  Under  this  provision  steps  have  already 
been  taken  in  many  of  the  provinces  to  provide  an  industrial  depart- 
ment in  the  provincial  school.  This,  together  with  the  instruction  in 
agriculture  provided  for  b}^  the  same  law,  will  enable  the  provinces  to 
cover  the  whole  range  of  practical  teaching.  As  there  are  already 
between  twent^^-tive  and  thirt}^  provincial  schools  established,  it  ma}' 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  415 

be  clearly  seen  that  provision  has  already  been  made  for  a  very  wide 
extension  of  industrial  training,  and  when  each  province  shall  have 
organized  its  provincial  school  the  industrial  feature  of  secondary 
instruction  will  be  as  widespread  as  any  other  phase  of  education. 

EDUCATION   OF   THE   IGORROTES. 

The  presence  of  a  large  number  of  Igorrotes  among  the  interior 
mountains  of  northern  Luzon  makes  it  impossible  for  the  government 
to  ignore  the  problem  of  their  education.  They  do  not  appear  to  wish 
either  our  religion  or  our  clothes;  yet  from  this  we  ma}^  not  safely 
infer  that  we  are  able  to  give  them  nothing  for  their  advantage  which 
the}^  may  be  willing  to  accept.  In  their  present  condition  they  have 
many  admirable  qualities.  By  their  physical  development  and  mar- 
velous powers  of  endurance  they  put  to  shame  the  thin,  weak,  and 
indolent  dwellers  of  the  lowlands.  They  are  able  to  work,  and  when 
put  to  a  task  perform  it  with  energy  without  the  constant  prodding  of 
an  overseer.  They  are  much  more  honest  than  many  who  have  had 
the  advantages  of  civilization.  It  is  not,  however,  to  he  supposed  that 
by  a  single  step  they  can  be  advanced  to  the  status  of  civilization. 
The  only  education  required  by  them  at  the  hands  of  the  government 
is  that  which  will  enable  them  to  make  the  most  of  the  circumstances 
in  which  they  live,  and  in  which,  without  material  change,  they  are 
destined  to  remain  for  an  indefinite  period.  It  has  been  thought 
unwise,  except  in  cases  where  individual  Igorrotes  are  removed  to  and 
live  in  civilized  communities,  to  give  them  any  other  teaching  than 
that  which  will  fit  them  to  perform  more  efficiently  the  labor  necessary 
in  their  rude  state.  The}^  need  to  be  taught  to  be  better  masons,  bet- 
ter carpenters,  better  gardeners  and  farmers,  and  more  skillful  makers 
of  the  various  articles  that  are  used  by  them.  They  need,  moreover, 
sufficient  knowledge  of  a  cultivated  language  to  enable  them  to  deal 
advantageously  with  the  civilized  inhabitants  by  whom  the}'^  are  sur- 
rounded. This  ideal  is  not  very  high,  but  it  is  the  highest  the  Igor- 
rotes as  a  people  can  at  present  attain.  Undoubtedly  individual  Igor- 
rotes, separated  from  their  ancient  surroundings,  might  acquire  much 
knowledge  and  adopt  the  customs  of  civilized  men;  but  as  a  people, 
scattered  among  the  mountains,  living  in  very  small  isolated  hamlets, 
they  can  make  use  of  only  a  very  gradual  way  upward.  For  reasons 
here  involved  the  education  that  is  being  prepared  for  the  Igorrote  is 
a  simple  form  of  industrial  training,  in  acquiring  which  he  Avill  not  be 
obliged  to'depart  very  widely  from  his  habitual  course  of  life.  Care 
should  conthiue  to  be  taken,  however,  to  impress  upon  him  the  fa(;t 
that  the  horrible  filth  in  which  he  lives  at  present  is  neither  necessary 
nor  desirable.  Schools  to  furnish  training  in  accordance  with  the  plan 
here  indicated  have  been  establised  in  Lepanto-Bontoc  and  in  Benguet, 
where  they  are  placed  under  the  general  direction  of  the  provincial 
governors,  who  are  required  by  law  to  act  as  division  superintendents 
for  their  provinces. 

THE   NEGRITOS. 

Hitherto  no  attempts  have  been  made  to  reach,  by  any  educational 
process,  the  feeble  and  declining  tribes  of  Negritos,  who  load  the 
wandering  life  of  wild  men  in  the  mountains  of  some  of  the  provinces. 
They  are  comparatively  few  in  number  and  are  very  near  the  bottom 


416  REPORTS    OF    THE    CIVIL    GOVERNMENT 

of  the  social  scale.  Tho}"  are  apparently  a  hopeless  fragment  of 
hunianitv,  not  sntHciontly  advanced  to  e8ta))lish  and  maintain  for  them- 
selves permanent  abiding  places,  and  ure  therefore  ignored  in  the 
sj^stem  of  education  which  embraces  the  other  people  of  the  islands. 

EDUCATION    OF   THE    MOROS. 

The  Moros,  on  the  other  hand,  can  not  be  wisely  left  out  of  consid- 
eration. Like  the  Igorrotes  they  manifest  little  or  no  desire  to  place 
themselves  under  the  civilizing  influences  which  the  government  may 
exert.  Their  religion  appears  to  satisfy  their  present  needs,  and  the}' 
show  no  inclination  either  to  accept  or  tolerate  any  other.  Occupying 
some  of  the  richest  lands  of  the  archipelago,  they  appear  to  liave 
abundant  food,  and  whatever  excitement  is  needed  to  contribute  to 
their  happiness  they  find  in  the  intertribal  conflicts  which  mark  their 
history.  For  generations  they  have  been  as  the}"  are,  and  they  see  no 
reason  why  they  should  be  plunged  into  that  uncomfortable  stream 
which  we  call  progress.  The  knowledge  of  the  wisdom  and  traditions 
of  their  ancestors  apparently  satisfies  them.  Instruction  among  them, 
to  be  successful,  must  start  from  their  point  of  view,  and  the  instructor 
has  to  exercise  great  care  not  to  do  violence  to  their  traditional  ideas. 
In  accordance  with  this  view,  teaching  among  the  Moros  oti  a  limited 
scale  has  been  undertaken  in  two  schools,  one  in  Zamboanga  and 
another  in  the  island  of  Jolo,  but  at  present  the  Moros  are  not  mani- 
festing any  considerable  eagerness  to  be  taught  by  Americans.  Like 
many  other  people  in  the  rudimentary  stage  of  social  development, 
they  entertain  an  exaggerated  idea  of  the  importance  of  their  power 
and  popular  wisdom.  As  long  as  they  remain  in  the  delusion  that 
they  are  invincible,  it  will  not  be  possible  by  any  system  of  instruc- 
tion to  break  the  authority  of  their  inherited  views.  No  change  is 
likely  to  be  made  in  these  views  except  as  a  consequence  of  recogniz- 
ing the  physical  superiority  of  some  other  people.  The  education  of 
the  Moro  must,  therefore,  follow  his  awakening  to  an  appreciation 
of  his  feebleness  as  contrasted  with  the  powers  of  a  civilized  nation. 

LOCAL    SELF-HELP    IN    EDUCATIONAL    AFFAIRS. 

It  is  possible  that  if  no  other  consideration  has  been  taken  account 
of  in  the  development  of  the  schools  and  the  construction  of  school 
buildings,  much  more  might  have  been  accomplished  if  the  funds  and 
forces  at  the  disposal  of  the  insular  government  had  been  used  more 
f  reel3\  By  reason  of  many  generations  of  subjection  to  a  strongly  cen- 
tralized administration,  the  Filipinos  have  failed  to  develop  the  spirit 
of  local  self-help  and  the  sense  of  local  responsibility  in  the  municipali- 
ties and  provinces,  and  in  view  of  the  fact  that  the  government  here 
established  provides  for  a  certain  degree  of  self-government,  in  the 
municipalities  and  provinces,  it  was  recognized  that  it  would  be  desir- 
aljle  to  stimulate  the  sense  of  municipal  and  provincial  responsibility 
as  far  as  this  could  be  done  without  sacrificing  the  present  too  much 
to  the  future.  It  was  manifest  that  the  people  were  especially 
interested  in  education  and  were  willing,  in  many  cases,  to  make 
extraordinary  efiorts  to  secure  proper  schools.  By  allowing  them  to 
understand  that  American  teachers  would  be  furnished  wherever  suit- 
able accommodations  for  schools  were  provided,  the  spirit  of   local 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  4l7 

pride  was  in  a  measure  aroused,  and  in  many  cases  the  municipalities 
have  made  noteworthy  efforts  either  to  build  suitable  schoolhouses  or 
to  repair  those  which  had  suffered  some  j^ears  of  neglect.  Evidence 
of  the  beginning  of  a  healthy  activity  in  this  respect  comes  from 
various  quarters.  The  Commission,  in  act  No.  74,  indicated  that 
$400,000  might  be  spent  in  building  and  equipping  schoolhouses,  but 
only  a  very  small  part  of  this  has  been  actually  used,  and  in  view  of 
the  improvement  in  the  finances  of  the  provinces  it  is  not  probable 
that  large  sums  will  he  required  by  them  from  the  insular  government. 
Another  step  tending  toward  the  ultimate  developmentof  local  initia- 
tive in  school  affairs  was  taken  in  the  provision  for  the  organization  of 
local  school  boards.  In  many  places  these  boards  were  not  organized 
until  very  recently,  when  the  division  superintendents  and  the  teachers 
had  become  acq  uaintcd  with  the  people  of  the  various  towns  and  were  able 
on  personal  knowledge  to  make  a  proper  selection  of  persons  to  serve  on 
these  boards.  In  practice  the  American  teachers,  after  due  observa- 
tion, make  recommendations  of  persons  who  by  their  ability,  interest  in 
school  matters,  and  influence  in  the  town  seem  to  be  suitable  persons 
to  be  consulted  in  connection  with  the  conduct  of  schools.  These  rec- 
ommendations are  made  to  the  division  superintendent,  who  appoints 
one-half  of  the  members  of  the  board.  Hitherto  these  boards  have 
exerted  but  little  influence  in  the  conduct  of  the  schools.  This  is  what 
might  be  expected  on  account  of  their  want  of  previous  experience  in  edu- 
cational affairs,  but  b}^  being  associated  with  the  teachers  and  the  division 
superintendents  they  are  gradually  acquiring  familiarity  with  the  plans 
and  purposes  of  the  Americans  in  the  establishment  and  conduct  of  the 
public  school  system.  One  obstacle  which  prevents  the  local  school 
board  from  exercising  any  considerable  authority  or  influence  in  school 
matters  is  the  very  great'power  which  by  custom  resides  in  the  presi- 
dent of  the  municipality.  The  people  of  the  town  are  practically 
dominated  by  him.  and  as  long  as  custom  maintains  his  influence  the 
school  board  will  be  able  to  exercise  very  little  authority,  but  the 
fact  that  in  the  school  board  another  power  has  been  created  indicates 
the  possibility  of  its  becoming  more  important  and  thus  curtailing 
somewhat  the  absolutism  of  the  municipal  president.  It  is  possible, 
and  indeed  probable,  that  this  policy  of  placing  the  municipalities  in 
a  position  where  their  desire  for  the  service  of  trained  teachers  has 
induced  them  to  pursue  a  plan  of  self-help  has  at  the  same  time  left  a 
certain  number  of  very  poor  towns  without  the  assistance  that  might 
justly  have  been  given  them.  In  the  great  majority  of  cases,  however, 
this  policy  has  had  beneficent  results,  and  in  carrying  it  out  that  phase 
of  social  growth  has  been  stimulated  which  is  vital  under  the  system 
of  government  that  has  been  adopted.  The  old  regime  led  all  the  com- 
munities to  look  to  the  central  government  for  its  countcMiance  and 
support.  Necessary  to  the  success  of  the  new  regiine  is  the  spirit  of 
local  initiative  and"^  local  independence  in  economical  affairs.  The 
policy  for  the  future  involves  the  diificult  problem  of  determining  how 
mucli  assistance  may  be  warranted  ])y  the  condition  of  the  insular 
treasury  and  how  nnich  may  be  afforded  by  it  without  stunting  the 
zeal  and  pride  and  ambition  of  the  local  communities  to  ))eself-sup])ort- 
ing  and  independent  bases  for  the  upholding  of  the  social  and  political 
system. 


418  KKl'OK'l'S    OF    THK    CIVIL    OOVKIINMKNT 

INSTRUCTION    IN    AGKICULTURE. 

The  organization  of  tho  school  of  aj^riculturc  provided  for  by  act 
No.  74  has  been  delayed  with  a  view,  if  possible,  to  brinoiiig-  it  into 
connection  with  the  proposed  experimental  sugar  plantation  in  the 
island  of  Negros.  While  this  project  was  under  consideration  and 
investigations  were  in  progress  to  determine  the  proper  plans  for  such 
a  plantation  it  was  impossible  to  fix  definitely  the  site  of  the  proposed 
school.  Finalh',  in  view  of  the  large  amount  of  work  devolving  upon 
the  general  superintendent  of  education,  and  in  view  of  the  fact  that 
the  bureau  of  agriculture  would  have  constantly  in  its  service  a  num- 
ber of  experts  who  might  be  used  for  some  part  of  the  year  as  instruc- 
tors in  the  school  and  at  other  times  carry  on  their  various  investiga- 
tions, it  was  determined  that  the  school  of  agriculture  proposed  for 
the  island  of  Negros  should  be  placed  under  the  bureau  of  agriculture, 
and  the  government  farm  at  La  Granja  was  selected  as  its  site.  While 
thus  the  school  of  agriculture  is  placed  under  the  jurisdiction  of  the 
bureau  of  agriculture,  arrangements  have  been  made  by  which  certain 
teachers  in  the  provinces  will  be  employed  to  cooperate  with  the 
bureau  of  agriculture  in  making  various  experiments  and  in  gathering 
such  information  as  may  be  useful  in  promoting  knowledge  of  the 
agricultural  conditions  of  the  islands.  At  the  same  time  the  law  estab- 
lishing secondary  instruction  in  provincial  schools  provides  for  the 
extension  of  the  curriculum  beyond  the  ordinary  course  of  high  school 
instruction  and  makes  it  embrace  not  only  commercial  subjects  and 
manual  training,  but  also  normal  school  instruction  and  instruction  in 
agriculture,  which  means  that  the  provincial  schools  may  on  a  larger 
or  smaller  scale,  as  the  authorities  of  the  province  may  determine, 
carry  on  instruction  and  experiments  in  such  branches  of  agriculture 
as  may  be  supposed  to  be  adapted  to  the  conditions  in  the  province  in 
which  any  provincial  school  is  established. 

COMPULSORY   SCHOOL   ATTENDANCE. 

Hitherto  it  has  not  been  thought  advisable  to  carry  out  any  general 
system  of  compulsory  attendance  on  the  public  school.  At  the  outset 
of  its  deliberations  on  the  subject  of  free  public  education  the  Com- 
mission took  up  and  carefully  considered  the  question  of  the  desira- 
bility of  adopting  a  general  law  compelling  the  attendance  of  children 
between  certain  ages  either  at  public  schools  or  at  private  schools  of 
recognized  standing.  For  lack  of  schoolhouses  and  teachers  it  was 
impossible  to  accommodate  all  the  children  of  school  age,  either  in 
Manila  or  in  the  provincial  towns.  If,  therefore,  a  compulsory  school 
law  had  been  passed,  it  would  have  been  impossible  to  carry  it  out. 
In  man}^  of  the  municipalities  the  municipal  ofiicers  would  have  been 
likeh"  to  interpret  it  as  meaning  compulsory  attendance  at  a  public 
school,  and  might  therefore  have  interfered  with  the  freedom  of 
teaching  which  has  been  approved,  provided  that  teaching  fulfills  the 
condition  of  a  certain  standard.  Moreover,  on  account  of  the  poverty 
and  the  unsettled  condition  of  the  population,  a  compulsory  school  xaw 
would  have  imposed  a  real  hardship  on  many  parents  and  placed  an 
embarrassing  obligation  on  the  ofiicers  of  the  government.  Such  an 
order  issued  by  the  insular  government  might  very  well  have  removed 
from  the  local  authorities   the  opportunity  to  consider  this  subject 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  419 

independenth'.  Under  existing-  conditions  the  question  of  attendance 
at  the  schools  has  been  brouoht  to  the  attention  of  many  of  the  munici- 
palities and  they  have  had  an  opportunity  to  exert  their  local  influence 
in  the  matter,  thus  stimulating  their  sense  of  local  responsibility. 
This  opportunit}^  of  the  people  of  the  town  to  acton  a  project  in  which 
they  are  vitalh^  interested  has  furnished  another  occasion  in  which  to 
develop  the  spirit  of  self-help,  and  this  although  the  towns  have  not 
the  legal  authority  to  pass  ordinances  making  education  compulsor3^ 
However,  the  town  has  been,  in  some  measure,  able  to  reach  and  affect 
this  question  b}-  the  development  of  a  local  public  opinion  in  favor  of 
public  education.  In  the  course  of  time  it  will  probabh^  be  found 
desirable,  when  schoolhouses  shall  have  been  constructed  and  a  suffi- 
cient number  of  teachers  trained,  to  pass  a  general  law  affecting  this 
question,  either  making  attendance  at  schools  of  a  certain  standard 
generally  compulsory  throughout  the  archipelago  or  authorizing  the 
provinces  or  the  municipalities  to  legislate  on  the  subject. 

NIGHT   SCHOOLS. 

The  night  schools  were  originall}^  organized  in  Manila  in  September, 
1900,  for  the  instruction  of  persons  who  had  passed  bej'ond  the  age 
when  the}^  could  be  expected  to  attend  the  primary  schools.  These 
were  chiefly  young  men  who  wished  to  learn  English  that  the}^  might 
use  it  in  their  business  or  in  clerkships,  Filipino  teachers  also  attended 
these  schools  to  prepare  themselves  for  the  contemplated  change  from 
Spanish  to  English  as  the  language  of  instruction.  When  the  pupils 
had  acquired  a  sufficient  knowledge  of  English  to  enable  them  to  use 
it  with  some  degree  of  facility  in  their  studies  the  curriculum  of  the 
night  school  was  made  to  emljrace  certain  subjects  that  had  a  prac- 
tical value  for  those  in  attendance.  Some  of  the  schools  introduced 
bookkeeping,  stenography,  typewriting,  and  telegraphy,  and  more  of 
them  history,  arithmetic,  and  geograph}-.  They  have  been  attended 
by  young  men  wishing  to  enter  the  civil  service  in  order  to  acquire  the 
necessary  knowledge  of  English,  and  In"  persons  already  in  the  serv- 
ice to  flt  themselves  for  promotion  to  the  higher  grades. 

The  inmiediate  and  striking  success  of  the  night  schools  in  Manila 
seemed  to  warrant  their  introduction  into  the  towns  in  the  provinces. 
In  a  large  number  of  places  therefore  where  American  teachers  were 
stationed  night  schools  were  established  and  taught  by  one  or  more  of 
the  daj^-school  teachers.  These  schools  were  attended  ])y  moml)ers 
of  all  classes,  including  the  municipal  officers  and  sometimes  the  gov- 
ernoi's  of  provinces,  as  well  as  by  young  men  and  young  women  living 
in  the  town.  They  have  exercised  no  little  influence  in  giving  the 
more  influential  classes  ideas  respecting  the  methods  and  pui'poscs  of 
American  education.  There  have  })een  employed  in  the  Manila  night 
schools  many  persons  not  otherwise  engaged  as  teachers,  such  as  per- 
sons with  the  requisite  attainments  regularly  engaged  in  the  civil 
service,  while  in  the  provinces  the  night  schools  hav(^  ])een  almost 
exclusively  taught  by  American  teachers  regularly  engaged  in  the  day 
schools.  The  demand  for  night  schools,  both  in  Manila  and  in  the 
jM'ovinccs,  has  been  strong  and  constant,  and  the  teachers  have  been 
willing  to  teach  in  them  foi'  a  conqjensation  of  !t^l5  a  month  for  three 
nights  in  the  week.  Dui-ing  the  past  year  nearly  500  teachers  have 
taught  in  these  school©,  and  nearly  20,000  pupils  have  been  enrolled. 


4t20  in<:i'()KTs  of  the  civit.  (ioveknment 

Two  thousand  and  fifty-seven  of  these  have  been  in  attendance  in  the 
nioht  schools  of  tlie  oit}^  of  Manila. 

To  correct  what  appeared  to  be  an  abuse  of  the  S3''stem,  the  Commis- 
sion provided  by  law  that  no  ni^ht  school  should  be  maintained  in  the 
city  of  ]\Ianilaor  elsewhere  at  the  i)ublic  expense  in  which  the  average 
attendance  was  not  at  least  25  pupils  over  the  age  of  14  3'ears.  This 
section  was  introduced  into  an  appropriation  bill  passed  on  the  14th  of 
July,  1002.  This  required  average  attendance  was  found,  after  a  brief 
experience,  to  be  too  high,  particularly  in  the  provincial  towns.  Owing 
to  the  irregularity  of  attendance  in  the  schools  generally  a  lai'ge  and 
unwield}'  number  had  to  be  enrolled  in  order  to  secure  the  required 
average  attendance.  With  this  large  number  it  was  impossible  to  do 
as  effective  work  as  had  been  done  in  the  schools  with  a  limited  num- 
ber of  pupils.  Prior  to  the  enactment  the  schools  had  been  organized 
and  carried  on  chiefly  by  administrative  authority.  When  there- 
fore the  law  of  October  8,  making  extensive  changes  in  the  organiza- 
tion of  tlie  system,  was  passed,  it  was  determined  to  give  the  night 
schools  a  proper  legal  status,  and  to  fix  the  number  of  average  attend- 
ance at  what  seemed  to  be  generally  feasible  and  not  too  great  to  inter- 
fere with  the  desired  efficiency  of  the  instruction.  The  provision  of 
Jul}^  14  was  therefore  repealed  and  15  fixed  as  the  required  average 
attendance.  By  this  law  the  general  superintendent  of  education  was 
given  authority  to  establish  night  schools,  but  it  was  required  that  no 
night-school  class  should  be  maintained  at  the  expense  of  the  city  of 
Manila  or  the  insular  government  at  which  the  average  nightly  attend- 
ance in  each  school  month  under  each  teacher  should  not  be  at  least  15 
pupils  over  the  age  of  14  j^ears.  The  salaries  of  the  teachers  in  the  night 
schools,  except  in  the  city  of  Manila,  are  paid  by  the  insular  govern- 
ment. In  Manila  the  expenses  of  maintaining  the  night  schools  are 
borne  by  the  city  treasury. 

NAUTICAL   SCHOOL. 

The  increasing  number  of  pupils  in  the  nautical  school  and  the 
noteworthy  record  made  by  those  who  completed  the  course  at  the 
end  of  the  last  school  year  seem  to  justify  the  plans  which-  have 
alread}^  been  formed  for  the  reorganization  and  enlargement  of  the 
institution.  These  plans  involve  giving  it  new  and  adequate  quarters 
by  the  sea  and  providing  for  it  dormitories  so  that  the  J^oung  men 
there  enrolled  maj'  be  constantly  under  the  control  and  discipline  of 
the  superintendent  of  the  school.  They  involve,  moreover,  erecting 
suitable  buildings  on  the  shore  of  Mariveles  Bay,  where  advantage  can 
be  taken  of  the  excellent  water  that  has  been  brought  from  the  moun- 
tains to  the  barracks  near  the  town  of  Mariveles,  and  where  such  ships 
and  boats  as  may  be  had  for  the  use  of  the  school  can  lie  in  perfect 
safety  in  all  kinds  of  weather.  They  also  involve  giving  authority  to 
the  several  provinces  to  appoint  a  certain  number  of  persons  to  become 
students  in  the  nautical  school,  while  certain  other  candidates  may  be 
appointed  at  large  by  the  civil  governor.  The  number  to  be  appointed 
by  each  province  and  by  the  governor  will  depend  upon  the  number  it 
is  desired  to  have  enrolled  and  maintained  in  the  school.  This  organ- 
ization will  entail  on  the  government  the  expense  not  only  of  furnish- 
ing instruction,  l)ut  also  of  providing  quarters  and  sul)sistence  foi-  the 
students.     Among  the  advantages,  however,  of  such  an  organization 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  421 

may  be  set  down  the  fact  that  the  young  men  will  form  a  distinct  corps 
under  careful  instruction  and  be  subject  to  strict  discipline,  and  be 
thus  prepared  for  intelligent  service  in  the  bureau  of  coast  guard  and 
transportation  as  well  as  on  ships  engaged  in  the  interisland  trade. 
On  October  4,  1902,  the  Commission,  on  the  recommendation  of  the 
secretary  of  public  instruction,  adopted  a  resolution  appointing  Com- 
missioner Moses  a  committee  of  one  to  confer  with  the  commanding 
general  on  behalf  of  the  Commission  to  learn  whether  it  might  be 
possible  to  secure  a  proper  site  for  the  nautical  school  at  Mariveles 
within  the  lines  of  the  military  reservation  if  it  should  prove  that  the 
only  land  available  for  such  purpose  lay  within  the  reservation. 
Under  this  resolution  a  conference  between  Maj.  Gen.  George  W. 
Davis,  commanding  Division  of  the  Philippines,  and  the  secretary  of 
pul)lic  instruction  was  had,  and  steps  taken  toward  selecting  a  site  for 
the  nautical  school  on  the  shore  of  Mariveles  Bay.  On  the  15th  of 
September  Admiral  Rodgers,  in  accordance  with  instructions  from  the 
Secretar}^  of  the  Navy,  detailed  Lieut.  Commander  J.  H.  Glennon  to 
become  superintendent  of  the  school  in  place  of  Lieut.  Commander 
J.  J.  Knapp,  who  was  recalled  to  the  United  States. 

SCHOOL   OF  TELEGRAPHY. 

With  the  establishment  of  peace  and  the  withdrawal  of  the  bulk  of 
the  soldiers  from  the  islands,  the  military  authorities  are  ready  to 
transfer  the  telegraph  lines  to  the  civil  government.  In  order  to  be 
able  to  undertake  their  operation  the  government  has  found  it  neces- 
sary to  make  special  preparation  for  the  training  of  a  considerable 
number  of  Filipinos  to  become  operators.  For  the  purpose  of  pro- 
viding this  force  a  school  of  telegraphy,  as  a  department  of  the  trade 
school,  was  opened  in  Manila  on  February  12, 1902.  The  instruments 
were  provided  by  the  Signal  Corps  of  the  Arm3^  The  opportunities 
afforded  to  young  men  by  this  instruction  were  clearly  seen,  and  a 
considerable^  number  of  pupils  were  enrolled  at  once.  At  present 
there  tire  71  in  the  school.  Of  this  number  15  are  already  able  to  act 
as  operators  in  offices.  When  brought  into  the  service  they  will  be 
enrolled  in  the  constabulary,  since  the  bureau  of  constabulary  will 
have  charge  of  the  telegraph  and  telephone  lines  in  the  islands.  The 
need  very  soon  of  a  larger  number  of  operators  than  will  be  provided 
by  the  Manila  school  has  led  to  the  establishment  of  two  other  schools, 
one  iit  Vigan  and  one  at  Iloilo.  The  school  at  Vigan  is  expected  to  train 
Ilocanos  who  may  become  operators  in  northern  Luzon,  the  school  at 
Manila  to  train  especially  Tagalogs  for  service  in  central  Luzon, 
while  the  school  at  Iloilo  will  provide  instruction  for  Visayans  who 
will  bo  able  to  take  charge  of  the  stations  in  the  southern  islands  of 
the  archipelago. 

MUNICIPAL,  PROVINCIAL,  AND    INSULAR   SUPPORT   OF   SCHOOLS. 

While  the  public  school  system  as  at  present  organized  provides  for 
primary  and  secondary  instruction  and  for  certain  special  schools,  as 
yet  no  important  step  "has  been  taken  to  make  provision  for  higher  or 
"university  education.  This  form  of  instruction  in  a  very  short  tiine 
will  be  imperatively  needed,  since  the  students  from  the  provincial 
schools  of  secondary  instruction  will  have  completed  their  courses,  and 


422  KKPORTS    OK    THE    CIVIL    OOVERNMENT 

many  of  thciu  will  ivquirc  opportunity  for  further  stud\^  and  training. 
AVliilo  it  may  bo  desirable  to  send  considerable  numbers  to  the  United 
States,  where,  iinder  the  actual  conditions  of  life,  they  may  acquire  a 
knowledo-e  of  American  civilization,  yet  for  the  great  body  of  Filipinos 
there  nmst  be  provided  in  these  islands  all  the  opportunities  for  edu- 
cation which  they  will  ever  be  able  to  enjoy.  A  university,  therefore, 
organized  to  supplement  the  instruction  given  in  the  provincial  schools 
will  be  demanded  by  the  Filipino  3'outh.  They  will  need  to  ])e  taught 
not  only  in  those  legal  and  historical  subjects  which  will  tend  to  enable 
them  to  comprehend  and  aid  in  the  administration  of  the  government 
under  which  they  live,  but  also  those  practical  sciences,  such  as  civil 
and  electrical  engineering,  chemistry  and  its  numerous  applications  in 
manufacturing,  and  the  various  forms  of  mechanical  work  which  lie  at 
the  basis  of  the  material  progress  of  the  country,  and  such  an  institu- 
tion it  will  be  the  duty  of  the  government  in  the  very  near  future  to 
provide. 

For  further  details  concerning  the  public  schools  during  the  past 
year  reference  is  made  to  the  report  of  the  general  superintendent, 
annexed  hereto  as  Exhibit  A.. 

CONSTRUCTION  AND  REPAIR  OF  PUBLIC  BUILDINGS. 

The  necessity  of  repairing  many  of  the  public  buildings  which  had 
been  neglected  for  several  years,  of  enlarging  others,  and  of  erecting 
new  ones  induced  the  Commission  to  send  a  cablegram,  dated  May  11, 
1901,  to  the  Secretary  of  War,  asking  him  to  appoint  a  competent 
architect  to  become  the  chief  of  the  bureau  of  architecture  to  be  cre- 
ated by  the  Commission.  In  accordance  with  this  request  the  Secretary 
appointed  Mr.  Edgar  K.  Bourne,  who  arrived  in  Manila  October  10, 
1901.  A  few  days  later,  October  18,  an  act  was  passed  creating  a 
bureau  of  architecture  and  construction  of  public  buildings.  Jt  was 
provided  that  this  bureau  should  have  charge  of  the  constructing  and 
repairing  of  public  buildings  belonging  to  the  insular  government  and 
such  other  buildings  or  proposed  buildings  as  might  be  assigned  to  it 
by  the  civil  governor.  Mr.  Edgar  K.  Bourne  was  made  the  chief  of  this 
bureau  and  charged  with  the  duty  of  making  all  necessary  plans  and 
specifications  for  the  construction  and  repair  of  public  buildings.  He 
was  also  charged  with  the  further  duty  of  providing,  in  cases  where  it 
is  required  that  work  shall  be  done  under  contract,  all  means  necessary 
for  obtaining  bids  for  the  work  to  be  done,  and  he  was  authorized  to 
accept  bids  and  award  contracts  subject  to  the  approval  of  the  civil 
governor,  and  to  superintend,  either  in  person  or  through  an  officer 
of  the  bureau  appointed  for  that  purpose,  all  the  work  of  constructing 
and  repairing  public  buildings  authorized  by  the  insular  government. 
The  increase  in  the  work  required  of  the  architect  led  to  the  gradual 
enlargement  of  the  personnel  of  his  office  and  the  difficulty  of  finding 
draftsmen  among  the  Filipinos  who  were  more  than  excellent  copyists 
led  to  the  necessity  of  securing  American  draftsmen  by  application  to 
the  Civil  Service  Commission  in  Washington.  Immediately  after  his 
arrival  the  architect  was  requested  b}?^  the  secretary  of  public  instruc- 
tion to  undertake  the  reconstruction  of  the  building  in  which  it  was 
proposed  to  install  the  printing  plant.  After  delays  that  seem  unavoid- 
able in  connection  with  the  processes  of  building  in  the  Philippines, 
the  structure  Avas  so  far  advanced  toward  completion  that  the  printers 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  423 

were  able  to  occupy  some  part  of  it  in  May  of  the  present  year. 
Standing-  isolated  in  a  large  lot  with  the  amplest  opportunity  for  the 
free  circulation  of  air  around  it  and  through  it,  it  offers  as  favorable 
conditions  for  work  as  exist  in  Manila. 

The  two  most  important  buildings  at  present  under  construction  are 
the  addition  to  the  custom-house  and  the  building  for  the  government 
laboratories.  The  increase  in  the  shipping  of  the  port  of  Manila  has 
made  necessary  a  further  enlargement  of  the  facilities  for  receiving 
and  storing  goods.  By  extending  the  present  building  some  distance 
down  the  river  the  available  frontage  for  receiving  goods  from  the 
cascoes  and  lighters  will  be  increased  from  250  to  406  feet,  and  the 
crowding  and  delays  which  have  hitherto  been  an  annoyance  both  to 
the  merchants  and  the  officers  of  the  customs  service  will  be  set  aside. 
The  buildmg  for  the  government  laboratories  is  in  process  of  construc- 
tion on  the  southeast  corner  of  the  exposition  grounds.  This  large 
tract,  extending  from  Calle  Faura  to  Calle  Herran,  if  existing  plans 
are  carried  out,  will  become  the  center  of  a  number  of  special  schools 
and  laboratories,  including  the  normal  school,  trade  school,  and  ulti- 
mately a  university.  By  ranging  the  necessary  buildings  for  the 
several  schools,  laboratories,  and  libraries  around  a  great  court  extend- 
ing from  Calle  Faura  to  Calle  Herran,  not  only  the  maximum  conven- 
ience will  be  attained,  but  also  the  minimum  cost  of  furnishing  water, 
light,  and  power  to  the  group  of  institutions  here  established. 

In  the  immediate  future,  in  carrying  out  the  plans  for  the  nautical 
school,  it  wdll  become  necessary  to  construct  buildings  suitable  for 
class  exercises,  for  dormitories,  and  for  other  purposes  incidental  to 
the  maintenance  of  this  school. 

Whenever  the  government  of  the  Philippine  Islands  shall  be  empow- 
ered to  meet  the  imperative  necessity  of  a  stable  coinage  by  coining 
the  proposed  Filipino  peso  and  the  requisite  subsidiary  coins,  it  will 
be  necessary  either  to  remodel  the  existing  mint  building  or  to  pro- 
vide an  entirely  new  structure.  The  existing  Iniilding  stands  in  the 
Walled  City,  which  for  many  years  to  come  will  be  a  loss  desirable 
place  for  either  residence  or  for  carrying  on  any  kind  of  work  than 
the  more  open  parts  of  the  city  outside  of  the  walls. 

But  for  some  time  to  come  the  construction  of  schoolhouses,  both 
in  Manila  and  in  the  provinces,  will  be  the  most  important  work  in 
the  line  of  public  buildings.  This  work,  however,  devolves  largely 
on  the  municipal  or  the  provincial  authorities.  The  chief  of  the 
bureau  of  architecture  and  construction  of  public  buildings  may  be 
required,  however,  to  furnish  plans  for  schoolhouses  to  ))e  constructed 
by  cither  the  provinces  or  the  municipalities.  These  structures  will 
be  necessarily  simple  and  will  be  designed  to  meet  two  essential  con- 
ditions. They  will  be  constructed  to  keep  out  the  rain  and  tolet  in  as 
much  fresh  air  as  possil)le.  The  problem  of  heating  may  be  ignored, 
so  that  there  will  be  no  chimneys  to  construct,  and  consequently  the 
danger  to  the  crowds  of  children  assembled  from  tire  will  bo  reduced 
to  the  minimum.  A  provision  of  the  law  bearing  on  this  subject  is 
that  the  general  superintendent  of  education  shall  approve  plans  made 
by  the  chief  of  the  l)ureau  of  architecture  for  the  construction  of 
schoolhouses  to  bo  )>uilt  by  the  municipalities  or  provinces. 

Under  the  old  regime,  when  the  church  and  state  wore  closely  allied, 
some  of  the  functions  of  the  government  wore  performed  by  the  eccle- 
siastical authorities,  and  thus  certain  buildings  now  belonging  to  the 


424'  REPORTS    OF   THE    CIVIL    GOVERNMENT 

oluirch  wore  in  a  nioasuvc  used  for  the  purposes  of  government.  Com- 
plete separation  of  i-hurch  and  state  has  led  to  a  larger  demand  than 
formerly  existed  for  buildings  for  pui'eW  secular  use,  and  for  this  and 
other  reasons  the  buildings  at  the  disposal  of  the  government  are  inade- 
quate to  its  needs.  This  has  led  to  the  necessity  of  renting  buildings 
for  certain  bureaus  and  for  the  nuuiicipal  government,  but  this  arrange- 
ment is  only  temporar}',  and  it  will  be  advisable  in  the  course  of  time 
to  withdraw  from  the  use  of  these  rented  buildings  and  construct  build- 
ings better  adapted  to  the  purposes  for  which  they  are  used. 

The  buildings  at  present  demanded  by  the  government  are  sufficient 
to  occupy  the  attention  of  the  bureau  of  architecture  for  a  number  of 
years. 

After  having  made  careful  observations  extending  over  more  than 
a  3"ear  concerning  the  meteorological  conditions  of  the  province  of 
Benguet,  the  Commission  finally  determined  to  take  steps  to  provide 
accommodations  for  persons  in  the  civil  service  who  might  find  it  nec- 
essary to  resort  to  a  cooler  climate  for  the  recuperation  of  their  health. 
Having  become  fully  persuaded  of  the  desirability  of  constructing  a 
sanitarium  at  Baguio,  in  this  province,  the  Commission  authorized  the 
building  of  G  cottages  to  be  used  in  connection  with  the  convalescent 
hospital.  This  was  an  undertaking  of  considerable  difficulty.  In  the 
first  place  there  was  no  lumber  in  the  province  but  extensive  forests 
of  pine.  In  the  second  place,  the  only  means  of  access  to  Baguio  was 
over  a  rough  trail  of  about  30  miles  in  extent  beyond  Naguilian,  the 
limit  of  the  wagon  road.  Whatever  tools,  building  material,  food,  and 
laborers  it  was  necessary  to  have  in  Baguio  for  this  undertaking  had 
to  be  taken  over  this  mountain  trail.  All  lumber  needed  in  the  con- 
struction of  the  buildings  proposed  had  to  be  sawed  by  hand  from  the 
forest  trees  in  the  neighborhood.  After  considerable  expense  and 
much  delay  a  party  of  30  Chinese  skilled  workmen  were  taken  to 
Baguio,  and  the  work  of  felling  trees  and  sawing  lumber  was  begun. 
At  the  same  time  a  number  of  Igorrote  laborers  were  engaged  to  con- 
struct roads  on  the  grounds  set  apart  for  the  sanitarium.  Some  part 
of  the  expense  and  delay  was  due  to  the  fact  that  the  undertaking 
was  made  in  the  cholera  season,  when  the  movement  of  laborers  and 
material  was  subject  to  the  serious  restriction  of  the  quarantine.  These 
operations  have  resulted  in  the  completion  of  the  main  sanitarium 
building,  which  will  accommodate  about  00  persons,  while  a  number 
of  cottages,  each  containing  from  3  to  (3  rooms,  are  in  process  of  con- 
struction. An  incidental  result  of  this  undertaking  has  been  to  give 
the  rude  people  of  the  province  object  lessons  in  better  methods  of 
building  and  in  training  a  number  of  Ilocanos  to  become  more  skillful 
carpenters.  From  the  Igorrotes  it  was  impossible  to  obtain  skilled 
workmen.  For  the  work  of  road  building  they  were,  however,  found 
to  be  very  efficient.  Their  experience  in  building  narrow  trails  over 
the  mountains  has  been  in  some  measure  a  preparation  for  the  work 
here  required  of  them. 

In  the  absence  of  the  civil  governor  the  work  of  repairing  the  Mala- 
canan  Palace  was  undertaken.  This  house  had  sutfered  very  seriously 
from  neglect.  Under  some  portions  the  foundation  had  sunk  and  all 
portions  were  seriously  in  need  of  repair  in  order  to  make jt  a  comforta- 
ble dwelling  and  at  the  same  time  to  protect  the  interior  from  the  driv- 
ing storms.  A  few  thousand  dollars  were  appropriated  for  this  purpose, 
and  when  the  process  of  repairing  began  it  was  necessary  to  limit  the 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  425 

work  sinipl}^  to  the  most  necessary  changes  or  improvements.  After 
some  months  of  more  or  less  satisfactory  work  the  undertaking-  was 
conclrded,  with  the  expectation  that  the  rei3airs  that  had  been  made 
would  permit  the  building  to  be  used  comfortably  for  still  a  few  years. 
This  building  stands  on  the  right  bank  of  the  Pasig,  in  the  middle  of  an 
extensive  lot.  For  lots  similarly  situated  there  is  at  present  a  strong 
demand.  Its  long  river  frontage,  not  far  from  the  center  of  the  city, 
makes  it  very  valuable  as  a  site  for  warehouses.  It  might,  therefore, 
be  sold  with  very  great  advantage,  and  with  the  price  obtained  it 
would  be  possible  to  purchase  suitable  grounds  and  construct  a  house 
much  better  adapted  than  this  to  the  needs  of  the  civil  governor. 

Many  other  repairs  and  new  interior  constructions  have  been  under- 
taken. The  semaphore  station,  used  by  the  bureau  of  coast  guard  and 
transportation  for  observing  incoming  vessels  and  the  display  of 
weather  and  other  signals  for  the  benefit  of  the  shipping  in  the  bay, 
has  been  almost  entirely  rebuilt  above  the  foundations.  A  portion  of 
the  treasury  or  intendencia  building  has  been  set  apart  as  a  cash  room 
and  interior  furnishings  have  been  introduced,  fitting  it  for  the  pur- 
pose for  which  it  is  designed.  The  walls  about  Bilibid  prison  have 
been  strengthened,  the  top  of  the  city  walls  over  certain  casements 
have  been  repaired,  extensive  improvements  and  additions  have  been 
made  to  the  buildings  that  have  been  rented  for  the  civil  hospital,  new 
private  offices  and  waiting  rooms  for  the  collector  of  customs  and 
other  improvements  in  connection  with  the  custom-house  have  been 
completed,  the  buildings  on  the  exposition  grounds  remaining  from 
the  exhibition  held  shortly  before  the  American  occupation  have  been 
elaborately  repaired  for  the  use  of  the  normal  and  trade  schools,  and 
many  other  additions  and  repairs  demanded  by  the  extension  of  the 
government  offices  have  been  made. 

For  details  of  the  work  completed  and  the  work  now  in  progress  by 
the  bureau  of  architecture  and  construction  of  public  Iniildings,  refer- 
ence is  made  to  Exhibit  B. 

TRAINING    OF   WORKMEN. 

It  is  desirable-  that  the  bureau  of  architecture  and  construction  of 
public  buildings,  like  every  other  bureau  in  which  skilled  labor  is 
involved,  should  be  in  some  sense  a  school  for  the  Filipinos.  This 
bureau,  having  a  certain  number  of  men  in  various  departments  of 
special  skill,  aims  to  int)-oduce  as  assistants  or  apprentices  a  nunil)er  of 
Filipinos  who  may  be  instructed  in  the  use  of  American  tools,  and  niay 
thus  l)e  helped  to  acquire  a  degree  of  proficiency  in  work  which  will 
ultimately  justify  payment  to  them  of  higher  wages.  If  we  may  judge 
from  the'quality  of  work  involved  in  the  making  of  certain  pieces  of 
furniture  that  have  ))een  manufactured  in  the  country,  there  seems  to 
be  good  reason  for  supposing  that  the  Filipino  may  beconie,  under 
proper  instruction,  capable  of  doing  excellent  work.  The  Chinaman 
has  his  method  of  doing  things  and  proposes  under  all  conditions  to 
abide  by  it.  Ho  has  little  am])ition  or  willingness  to  adopt  a  new 
method'.  The  Filipino  workman,  on  the  other  hand,  appears  to  be 
more  ready  to  accept  suggestions  and  to  adapt  his  eft'orts  to  new  con- 
ditions. The  embarrassing  feature  of  the  situation  is  that  the  number 
of  Filipino  carpenters  is  extr(>melv  limited  and  thei-e  is  no  prospect 
that  the  number  will  be  increased  with  sufficient  rapidity  to  meet  the 


42(>  REPORTS    OF    THE    CIVIL    GOVERNMENT 

increasiug-  demand.  Apparently,  therefore,  the  main  reliance  of  build- 
ers for  some  years  to  come  must  be  on  Chinese  workmen,  and  since 
further  inunionition  is  prohibited  those  in  the  islands  will  become 
more  and  more  inadequate  to  the  performance  of  the  work  required, 
and  their  exorbitant  demands  will  make  the  business  of  building  more 
difficult  and  less  profitable. 

PUBLIC  PRINTING. 

The  fact  that  the  facilities  in  Manila  were  inadequate  to  the  work 
required  by  the  government  led  the  Commission  to  establish  a  govern- 
ment printing  office.     After  some  correspondence  with  the  Secretary 
of  War,  Mr.  John  S.  Leech  was  appointed  public  printer  on  the  recom- 
mendation of  Hon.  Frank  W.  Palmer,  Public  Printer  of  the  United 
States  Government.     Under  instructions  furnished  l)y  the  chief  of  the 
bureau  of  insular  aifairs  the  machinery  and  supplies  required  were 
purchased  and  shipped  to  Manila.     The  Commission  had  expressed  the 
wish  that  a  complete  printing  plant  should  be  purchased,  including 
appliances    for    stereotyping,    electrotyping,    and    photo-engraving-. 
Schedules  of  the  material  required  were  made  in  Washington,  and 
bids  for  furnishing  this  material  were  invited.     The  plant  having  been 
purchased,  Mr.  Edwin  C.  Jones  and   Mr.  James  A.  Hogsette  were 
ordered  to  proceed  to  Manila  to  assist  in  installing  the  machinery  and 
making  provision  for  the  proper  storing  and  caring  for  the  supplies. 
They  arrived  in  Manila  on  October  15,  1901.     They  brought  definite 
information  as  to  the  size  of  the  building  required  for  the  use  of  the 
printing  office.     Already  it  had  been  decided  to  reconstruct  the  build- 
ing formerly  occupied  by  a  trade  school,  and  on  October  17,  1901,  a 
resolution   was   adopted  by   the    Commission    providing    "that  the 
secretary  of  public   instruction  be,  and  he  is  hereby,  authorized  to 
install   the    government    printing   plant   in   the    building   near    the 
first    reserve    hospital,  used   as   a  trade   school    under  the   Spanish 
administration,  and  to  use  such    part  of  said  building  for  a   trade 
school  as   may  not  be   required  for  the  purposes   of   the   printing 
office,  and  to  cause  to  be  made  all  necessary  repairs  and  changes  in 
the  present  structure."     After  careful  examination  it  was  found  to  be 
desirable  to  add  a  second  story  to  the  building,  and  on  October  29  the 
Commission  passed  an  act  appropriating  $50,000,  in  money   of  the 
United  States,  for  making  repairs  and  additions  to  the  building  to 
be  occupied  bv  the  public  printing  office,  for  grading  and  laying  out 
the  grounds  about  the  building,  and  repairing  the  fence  surrounding 
these  grounds.     This  sum  was  found  to  be  inadequate,  and  subsequent 
appropriations  were  made,  making  the  total  cost  of  the  ])uilding  and 
improvement  of  the  grounds,  up  to  September  1  of  this  year,  189,121.68, 
in  money  of  the  United  States.     Owing  to  the  difficulties  encountered 
by  the  contractor  in  securing  the  requisite  number  of  skilled  laborers, 
there  were  unexpected  delays  in  completing  the  structure.     In  the  mean- 
time, by  resolution  adopted  October  31,  1901,  the  public  printer  was 
authorized  to  employ  such  carpenters  and  masons  and  other  laborers  as 
might  be  necessary  to  put  in  order  the  public  printing  building  and 
to  install  therein  the  machinery  and  other  appliances  belonging  to  the 
public  printing  plant.     On  November  7,  1901,  a  law  was  enacted  by 
the  Commission  creating  the  bureau  of  public  printing  and  providing 
for  the  organization  of  this  bureau  and  defining  the  duties  of  the  chief 
of  the  bureau  and  his  subordinates. 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  427 

The  public  printing  office  as  established  has  its  own  power  plant, 
with  boilers  adapted  to  the  use  of  either  coal  or  crude  oil  as  fuel;  it 
has  its  own  machine  shop  and  gas  plant,  and  each  machine  is  run  by 
an  independent  motor.  Considering  the  difficulty  of  obtaining  an 
adequate  number  of  skilled  workmen,  the  bureau  of  public  printing 
has  already  made  a  satisfactory  record. 

In  order  to  provide  opportunities  for  j^oung  Filipinos  to  learn  the 
printer's  trade,  it  was  determined  instead  of  establishing  a  class  for  the 
instruction  of  printing  in  connection  with  the  trade  school  to  intro- 
duce a  number  of  bo3"s  as  apprentices  in  the  public  printing  office. 
With  this  end  in  view  the  secretary  of  public  instruction  addressed  a 
letter  to  the  several  division  superintendents  of  schools  throughout  the 
archipelago,  asking  them  to  recommend  a  certain  number  of  boys  for 
apprentices  to  the  bureau  of  public  printing,  stating  that  it  wovdd  be 
made  the  duty  of  certain  employees  of  that  bureau  to  give  them  instruc- 
tion in  the  art  of  printing.  Several  have  been  recommended  and  ap- 
pointed, and  are  now  actively  engaged  in  the  different  divisions  of  the 
bureau  of  public  printing.  In  this  case,  as  in  many  other  cases  where 
instruction  in  trades  has  been  offered,  a  considerable  prejudice  is  found 
to  exist  on  the  part  of  parents  against  encouraging  their  children  to 
learn  a  trade  that  involves  manual  labor.  This  arises  very  largeh^ 
from'  ignorance  as  to  the  economic  advantages  of  skill  in  the  higher 
trades,  and  is  strengthened  b}^  the  preference  which  seems  to  exist  in 
all  countries  some  time  under  Spanish  rule  in  favor  of  clerkships  under 
the  government.  It  is  expected  that  a  new  and  more  healthy  view  in 
this  matter  will  appear  with  the  passing  of  the  traditions  and  prejudices 
of  the  old  regime. 

The  number  of  employees  in  the  bureau  of  public  printing  on  the 
15th  of  October  of  the  present  year  was  164.  Of  these,  60  were  Amer- 
icans and  104  Filipinos  and  Chinese.  As  a  people  the  Filipinos  are 
physically  weak,  but  here  we  have  a  kind  of  employment  making  no 
great  demands  on  their  strength,  but  requiring  simph"  care,  good  taste, 
and  persistence.  The  character  of  the  work  done  b}'  man}'  of  the  Fili- 
pinos is  satisfactory,  and  it  is  believed  that  with  opportunities  and 
training  in  connection  with  the  excellent  mechanical  appliances  of  the 
public  printing  office  they  will  show  themselves  efficient  workmen. 

Bills  contracted  prior  to  June  30,  15)02,  on  account  of  the  bureau  of 
public  printing,  were  as  follows:  For  equipment,  $124,182.75;  for  sup- 
plies, other  than  printing  paper,  $24,325.61;  for  paper,  $45,360.92;  for 
transportation  and  other  charges,  $7,441.51;  sundries,  $10,137.11, 
making  a  total  for  equipment,  material,  supplies,  transportation,  and 
other  charges  to  June  30,  1902,  of  $211,447.90.  Of  this  sum  bills  to 
the  amount  of  $4,432.56  remained  unpaid  on  that  date,  making  the 
total  disl)ursements  prior  to  June  30,  1902,  $207,015.34.  Disburse- 
ments for  salaries  and  wages  for  the  second,  third,  and  fourth  quarters 
of  the  fiscal  year  1902  amounted  to  $34,489.37,  making  the  total  dis- 
bursements by  the  bureau  of  public  printing  to  June  30,  1902, 
$241,504.71.  The  details  of  these  and  other  expenditures  are  set 
down  in  Exhibit  C. 

ARCHIVES. 

The  work  of  the  bureau  of  archives  during  the  past  year  has  been 
directed  to  two  principal  undertakings.  The  first  task  has  l)oen  to 
bring  into  more  complete  order  the  vast  mass  of  papers  that  have  been 


428  REPORTS    OF    TIIK    CIVIL    GOVERNMENT 

g-atliored  from  the  various  administrative  offices  and  placed  in  charge  of 
tlie  chief  of  the  bureau.  This  Avorlv  is  still  far  from  completion,  and 
before  it  i-an  properly  be  accomplished  more  adequate  (juarters  must 
be  provided  for  the  archives.  The  papers  are  at  present  kept  in  the 
tirst  story  of  the  treasury  or  intendencia  l)uildino-,  where  their  deteri- 
oration from  moisture  is  much  more  rapid  than  it  would  be  in  the  drier 
apartments  of  the  second  story.  In  the  course  of  time,  however,  all 
availal)le  space  in  this  building  will  be  needed  for  the  offices  of  the  treas- 
urer and  auditor,  and  for  this  reason  it  is  desirable  that  arrangements 
should  be  made  as  early  as  may  be  to  provide  for  the  archives  proper 
rooms  elsewhere. 

The  second  task  has  been  to  furnish  from  the  archives  such  docu- 
ments and  copies  of  documents  as  have  been  required  by  the  officers  of 
the  government  and  other  persons  for  their  information  or  to  settle 
questions  in  dispute  concerning  titles  to  property  and  other  matters. 

In  view  of  the  half-decayed  condition  of  some  of  the  older  docu- 
ments it  is  desirable  thi^  steps  should  be  taken  to  make  a  selection  of 
the  most  important  of  tfese  ancient  papers  and  have  them  carefully 
copied  and  printed,  a  trfislation  in  English  being  given  with  the  orig- 
inal. The  demand  on  the  part  of  libraries  in  the  United  States  and 
elsewhere  for  reliable  information  concerning  the  early  and  at  present 
obscure  history  of  the  Philippines  would  contribute  somewhat  toward 
the  expense  of  such  publication.  For  further  information  concerning 
the  archives  reference  is|iiade  to  Exhibit  D. 

■i 
THE  AMERJCAN  CIRCULATING  LIBRARY. 

Moved  by  patriotic  zeal  many  persons  in  the  United  States  made 
contributions  of  books  an*l  monAry^  for  the  establishment  of  a  library 
which  was  originally  designed  as&nemorial  to  those  officers  and  men  of 
the  military  and  naval  forces  of  The  United  States  who  have  lost  their 
lives  in  the'  service  of  their  country  in  the  Philippines.  This  library 
was  originally  under  the  independent  control  of  the  American  Circu- 
lating Librarv  Association  of  Manila,  and  in  the  spring  of  1901  it 
consisted  of  about  10,000  volumes.  The  object  of  the  association  was 
to  create  a  source  of  instruction  and  profitable  entertainment  for  all 
residents  of  jManila,  whether  permanent  or  transient,  or  of  whatever 
race  or  nationality,  and  to  disseminate  useful  knowledge  and  literary 
diversion  among  those  officers  and  men  of  the  military  or  naval  forces 
who  are  stationed  throughout  the  archipelago.  In  enlarging  the  library 
a  plan  was  formed,  which  to  a  certain  extent  has  been  carried  out,  to 
establish  sections  which  shall  continue  to  be  special  memorials  to  con- 
spicuous men  who  have  fallen  in  the  Philippines. 

In  1901  the  board  of  trustees  and  the  executive  board  of  the  associa- 
tion proposed  to  convey  the  lilirary  to  the  military  government  and 
any  succeeding  government  in  the  Philippine  Islands  in  trust  for  the 
free  use  of  the  United  States  soldiers  and  sailors  stationed  in  the 
Philippine  Islands  and  all  the  residents  of  the  city  of  Manila.  This 
trust  was  to  l)e  administered  under  the  legislative  control  of  the 
militiiry  government  or  its  successor,  the  civil  government  of  the 
Philippine  Islands,  which  should  make  suitable  arrangements  for  the 
proper  care  and  circulation  of  the  books  in  accordance  with  the  pur- 
poses of  the  original  gifts.  It  was  provided,  moreover,  that  the 
memorial  feature  should  be  perpetuated  and  that  the  magazines  and 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  429 

such  books  as  could  be  spared  should  be  sent  to  the  outlying  districts 
of  the  archipelago. 

The  offer  of  the  association  was  accepted,  and  b}'  a  law  enacted 
March  5,  1901,  it  was  provided  that  the  militar}^  governor  should 
appoint  a  board  of  trustees,  to  consist  of  five  members  resident  or  sta- 
tioned in  the  Philippine  Islands,  two  of  whom  should  be  members  of 
the  Arm}'  or  Nav}^  of  the  United  States  and  two  of  whom  should  be 
natives  of  the  islands.  Under  this  law  the  trustees  were  charged  with 
the  care  and  custody  of  the  books  and  other  property  of  the  American 
Circulating  Library  Association  of  Manila,  with  the  duty  of  providing 
the  nece«sar\'  rooms  or  buildings,  of  appointing  the  necessar}'  librarians, 
janitors,  and  other  employees,  and  of  making  rules  for  the  circulation 
of  the  books  in  accordance  with  the  terms  and  conditions  of  the  trust. 

This  library  has  been  open  to  the  public  since  March  9, 1900.  Dur- 
ing this  period  the  library  has  continuall}^  increased  and  at  the  begin- 
ning of  October,  1902,  it  contained  13,000  volumes,  almost  entirely 
gifts  from  America.  The  later  additions  have  been  of  excellent 
qualit}^  and  seem  to  indicate  that  although  the  bulk  of  the  army  is 
withdrawn  from  the  islands,  the  library,  which  had  its  main  original 
purpose  in  furnishing  a  source  of  knowledge  and  profitable  entertain- 
ment for  the  soldiers,  should  remain  an  established  institution  and 
become  an  important  public  library  for  residents  of  Manila.  Notwith- 
standing the  withdrawal  of  the  army  the  number  of  books  taken  out 
during  the  last  months  has  shown  a  marked  increase.  One  thousand 
four  hundred  and  ninety-seven  were  taken  out  in  July,  1,525  in  August, 
and  1,656  in  September.  Recognizing  the  need  of  more  central  and 
better  quarters  for  the  library,  the  authorities  have  in  contemplation 
providing  a  suitable  building  with  free  and  airy  reading  rooms,  in 
which  it  is  expected  the  library  will  come  to  perform  the  real  func- 
tions of  a  public  library;  and  there  are  indications  that  the  friends  of 
the  institution  who  gave  their  time  and  their  energy  to  its  foundation 
and  early  support  will  continue  to  give  their  assistance  to  the  work  of 
collecting  books  with  which  to  insure  its  continuous  growth. 

THE  MUSEUM. 

Recognizing  the  advisability  of  beginning  early  to  make  collections 
illustrating  the  ethnology,  natural  history,  and  commerce  of  the  Philip- 
pines, the  Commission  passed  an  act  October  29,  1901,  establishing  in 
Manila  an  insular  museum  of  ethnology,  natural  history ,  and  commerce, 
and  appropriated  t^8,000  in  money  of  the  United  States  for  niaintaining 
the  same  and  paving  the  expenses  of  collecting,  caring  for,  and  pre- 
serving the  objects  illustrating  the  ethnology  of  the  Philippine  Islands. 
The  nuiseum  thus  established  was  placed  temporarily  under  the  iuunedi- 
ate  direction  of  the  chief  of  the  l)ureau  of  non-Christian  tribes,  and  he 
was  authorized  to  expend,  from  time  to  time,  such  sums  ()ut  of  this 
appropriation  as  he  might  find  necessary  for  the  collection  of  the 
objects  authorized  by  this  act  to  be  purchased.  Under  this  act  a  large 
amount  of  material  "illustrating  the  ethnology  of  the  islands  has  been 
collected,  and  is  now  preserved  in  the  building  at  No.  228  Callc  Nueva, 
now  used  as  a  museum.  A  proper  structure  to  be  used  as  a  museum 
and  pu})lic  library  is  very  much  needed  at  the  present  time. 

One  of  the  divisions  of  the  museum  is  devoted  to  ethnology.  In  a 
pamphlet  issued  ])y  the  bureau  of  non-Christian  tribes,  giving  direc- 

23181—04 28 


430  REPORTS    OK    THE    CIVIL    (K)VEKNMENT 

tions  to  volunteer  field  workers,  some  space  was  devoted  to  the  mu- 
seum, asking-  the  cooperation  of  teachers,  provincial  olKccrs,  officers  of 
the  army,  and  Americans  and  Filipinos  o-enerally  in  the  Avorkof  mak- 
ing- representative  colkn-tions  of  specimens  illustrating-  the  industries, 
customs,  and  mode  of  life  of  the  many  tribes  living-  in  these  islands. 
In  view  of  the  fact  that  many  of  the  best  of  such  specimens  were  rap- 
idly disappearing,  a  special  plea  was  made  that  such  objects  as  had 
already  been  collected  might  be  placed  in  a  pu])lic  museum  rather  than 
be  held  in  private  collections.  Much  correspondence  has  resulted, 
some  specimens  have  been  secured  by  purchase  and  as  gifts  to  the 
nmseum,  and  various  small  sums  of  money  have  been  placed,  largely 
with  teachers,  for  the  further  collection  of  specimens. 

It  was  soon  apparent,  however,  that  the  best  way  to  make  collections 
was  to  send  into  the  field  for  that  purpose  representatives  of  the 
museum  who  would  be  careful  to  gather  all  the  necessary  information 
relative  to  the  objects  collected.  All  expeditions  made  by  the  bureau 
of  non-Christian  tribes  serve  also  as  collecting  trips  for  the  museum  of 
ethnolog-y.  A  limited  amount  of  exceptionally  good  material  has 
already  been  secured.  The  first  collecting-  was  done  in  December, 
1901,  among  the  Moros  of  Sulu  and  Mindanao,  by  Dr.  P.  L.  Sherman, 
who  secured  nearly  300  specimens  of  the  implements  of  industry,  arms, 
dress,  and  other  manufactured  products  of  the  Moros.  In  the  same 
month  Maj.  W.  H.  C  Bowen,  then  governor  of  Abra  Province,  in  an 
expedition  through  the  south  and  east  of  that  province,  gathered  about 
100  specimens  of  Tinguiane  art  and  manufacture.  Expeditions  con- 
ducted by  the  bureau  of  non -Christian  tribes  through  Benguet,  Lepanto- 
Bontoc,  Nueva  Vizcaya,  and  the  Cagayan  Valley,  begun  in  June  and 
not  yet  ended,  promise  rich  results  in  the  matter  of  ethnological  col- 
lections among-  the  Igorrotes  and  other  tribes  of  those  regions. 

Among  the  gifts  to  the  museum  may  be  mentioned  specimens  of 
Igorrote  shields  and  wood  fiber  blankets  by  Mr.  R.  H.  Morley. 
Though  properly  belonging  to  the  field  of  natural  history,  here,  too, 
may  be  mentioned  a  collection  of  birds'  eggs  presented  to  the  museum 
b}'^  Judge  Ignacio  Villamor. 

It  is  the  aim  of  the  museum  of  ethnology  to  obtain  specimens  of 
every  article  made  or  used  by  every  tribe  in  the  archipelago.  A 
definite  plan  will  be  followed  in  the  display  of  these  objects  similar  to 
that  adopted  by  the  United  States  National  Museum,  using  the  family 
as  a  unit.  This  is  a  work  that  will  require  many  years  for  its  accom- 
plishment. Many  things  possessing  an  ethnologic  interest  are  doomed 
to  disappear  with  the  progress  of  civilization,  but  liefore  they  disap- 
pear special  effort  will  be  made  to  secure  specimens  to  be  preserved 
in  the  museum. 

Another  division  of  the  museum  is  devoted  to  natural  history. 
Work  in  this  branch  began  November  25,  1901,  with  the  appointment 
of  a  collector  of  natural  history  specimens  and  a  native  assistant. 
Thus  far  the  specimens  collected  have  been  chiefly  birds  and  mammals. 
The  collectors  accompanied  the  secretary  of  the  interior  and  the  com- 
missioner of  public  health  on  a  trip  made  in  December,  1901,  for  the 
purpose  of  selecting  a  site  for  a  leper  colony,  and  made  collections  on 
the  islands  of  Mindoro,  Cagayan  de  Jolo,  Palawan,  Cuyo,  and  Culion 
during  brief  visits  made  to  the  several  islands  mentioned.  During 
this  hasty  trip  1£7  bird  skins  were  secured,  including  two  specimens 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  431 

of  an  uudescribed  Chihia  from  Cuyo.  Two  specimens  of  an  uude- 
scribed  squirrel  shrew  were  also  obtained  in  Cu3^o. 

During  February  and  March  five  weeks  were  spent  b}'  the  collectors 
in  work  at  the  base  and  upon  the  steep  sides  of  Mount  Mariveles.  in  the 
province  of  Bataan.  The  hitherto  unexplored  island  of  Ticao  was  then 
visited,  and  an  exhaustive  collection  of  its  birds  was  made,  after  which 
a  considerable  collection  was  secured  on  the  neighboring  island  of 
Masbate. 

The  collectors  are  at  present  working  on  the  island  of  Lubang,  north 
of  Mindoro.  Collections  have  never  before  been  made  on  this  island, 
and  interesting  results  are  anticipated. 

A  small  collection  of  the  rarer  highland  birds  of  Luzon  was  made  in 
Benguet  in  July  by  the  secretary  of  the  interior  while  absent  on  sick 
leave  and  donated  to  the  museum. 

One  thousand  two  hundred  and  ninety-one  bird  skins  have  thus  far 
been  collected,  the  number  of  species  represented  being  209.  A  con- 
siderable number  of  the  rarer  land  birds  of  the  Philippines  are  included 
in  this  collection,  and  in  several  instances  where  species  have  hitherto 
been  shown  only  of  individuals  of  one  sex  individuals  of  the  other  sex 
have  been  secured. 

Seven  species  have  been  added  to  the  list  of  birds  known  to  inhabit 
the  Philippines.  Five  species  have  been  added  to  the  known  avifauna 
of  Luzon,  1  to  that  of  Mindoro,  3  to  that  of  Culion,  1  to  that  of  Pala- 
wan, 12  to  that  of  Cagayan  de  Jolo,  22  to  that  of  Cuyo,  and  10  to  that 
of  Masbate,  while  from  the  island  of  Ticao  91  species  have  been 
recorded. 

Two  bulletins,  one  setting  forth  in  detail  the  results  thus  far  o])tained 
and  the  other  giving  a  list  of  specimens  offered  in  exchange,  have  been 
sent  to  the  public  printer. 

It  is  proposed  to  send  the  collectors  in  the  near  future  to  the  Batanes 
and  Bal)uyanes  islands,  between  Luzon  and  Formosa,  and  to  Apo,  Ban- 
ton,  Buiias,  Polillo,  and  the  Camotcs  group,  and  as  opportunit}-  offers 
they  will  visit  the  almost  vuiknown  highland  regions  of  Mindoro,  Pala- 
wan, Mindanao,  Biliran,  and  Pana3\  Special  attention  will  ])c  given 
to  the  gathering  of  the  material  necessar}'^  to  settle  problems  of  geo- 
graphical distribution  which  are  as  yet  unsolved, 

A  good  beginning  has  also  been  made  in  the  field  of  entomology,  and 
the  cooperation  of  an  unusually  well-trained  and  enthusiastic  American 
teacher  now  stationed  on  the  island  of  Ncgros  has  been  secured  in  the 
work  of  collecting  specimens.  So  far  about  10,000  specimens,  repre- 
senting nearly  1,000  species,  have  been  collected,  but  are  yet  to  be 
classified.  Outside  of  these  two  lines  of  natural  history  nothing  has 
so  far  been  attempted. 

A  third  division  of  the  museum  is  devoted  to  articles  illustrating 
industr}^  and  commerce.  Active  work  in  the  commercial  nuiscum  was 
not  begun  until  July,  1902,  w'hen  the  division  of  conunerce  was  organ- 
ized and  placed  in  charge  of  a  clerk  chosen  cspccialU'  for  this  task.  To 
acquaint  himself  with  the  work  of  similar  institutions,  the  chief  of  the 
bureau  of  non-Christian  tribes  visited  in  the  past  year  the  commercial 
museums  of  Japan  at  Tokyo,  Kyoto,  and  Nagasaki,  the  Philadephia 
Museum  of  Commerce,  and  the  recently  inaugurated  Pacific  Commer- 
cial Museum,  of  San  Francisco. 

With  the  advent  of  peace  and  appropriate  legislation  capital  will 


432  KKTORTS    OK    THE    CIVIL    GOVERNMENT 

sook  invostniont  in  the  Philippines.  The  commercial  museum  thor- 
ouohlv  equipped  with  a  collection  of  the  products  of  the  islands,  an 
accurate  knoAvledge  of  their  needs  for  improved  methods  and  machin- 
ery, and  complete,  compreliensive,  and  reliable  data  concernino-  their 
productive  resources  and  tlieir  domestic  and  foreign  commerce  will  be 
of  great  value  not  only  to  investors,  but  more  especially  in  giving  direc- 
tion to  the  intelligent  and  economic  development  of  the  resources  of 
the  archipelago. 

The  following  is  an  outline  of  the  work  already  undertaken: 

1.  The  collection  and  exhibition,  both  in  crude  and  manufactured 
form,  of  the  commercial  products  of  the  islands. 

2.  The  collection  of  data  concerning  the  resources  of  the  islands. 

3.  The  collection  and  exhibition  of  the  articles  imported  from  other 
countries. 

4.  The  collection  of  data  concerning  commercial  possibilities,  espe- 
cially in  the  Orient,  with  a  view  to  the  extension  of  the  markets  for 
Philippine  products. 

It  is  the  aim  of  the  commercial  museum  to  use  the  data  and  exhibits 
thus  collected  to  aid  persons  in  the  intelligent  development  of  the 
resources  of  the  archipelago,  and  to  aid  in  the  extension  of  the  domestic 
and  foreign  trade  relations  of  the  islands.  The  museum  is  in  corre- 
spondence with  22  United  States  consuls  in  the  Orient,  with  all  the 
chambers  of  commerce,  and  nearly  all  the  important  business  firms  in 
the  city  of  Manila,  and  with  some  of  the  foreign  consuls  in  Manila 
for  the  purpose  of  collecting  desirable  information  and  encouraging- 
cooperation.  Correspondence  has  also  been  begun  with  the  commer- 
cial museums  of  Philadelphia  and  San  Francisco  and  with  the  four 
commercial  museums  of  Japan. 

In  addition  to  making  collections  in  the  field,  the  work  of  reading 
and  indexing  all  publications  bearing  on  the  resources  and  commercial 
interests  of  the  Philippines  has  been  undertaken  and  an  index  estab- 
lished of  all  information  received  from  correspondents.  The  informa- 
tion gathered  will  be  made  the  basis  of  bulletins,  which  will  be  pub- 
lished from  time  to  time  for  distribution  in  the  United  States  and 
elsewhere.  As  soon  as  the  collection  of  products  warrants  it  exhibits 
may  be  exchanged  with  the  commercial  museums  of  the  United  States 
and  other  countries.  Also  representative  exhibits  of  the  most  impor- 
tant products  of  the  Philippines  will  be  placed  in  the  best  markets 
abroad. 

STATISTICS. 

After  the  resignation  of  Mr.  Carl  C.  Plehn  as  chief  of  the  bureau  of 
.statistics  on  the  1st  of  March,  1901,  the  clerks  of  this  bureau  were 
transferred  to  other  bureaus,  and  the  work  was  for  the  time  being  sus- 
pended. The  unsettled  condition  of  the  population,  the  abnormal  state 
of  trade,  and  the  desirability  of  minimizing  the  expenses  of  the  govern- 
ment made  it  appear  advisable  to  delay  the  reorganization  and  expan- 
sion of  this  bureau.  In  December,  1901,  however.  Dr.  Manuel  Xerez 
Burgos  w^as  appointed  clerk  in  the  bureau  of  statistics  and  was  given 
possession  of  the  records  and  material  of  the  office,  and  directed  to 
gather  and  put  in  proper  order  such  statistics  concerning  the  Philip- 
pine Islands,  their  population  and  economical  and  social  affairs,  as  might 
be  desirable  to  publish  and  present  at  the  proposed  exhibition  at  St. 
Louis.     When  it  became  necessar}^  to  take  the  census  of  the  islands 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  433 

under  the  act  of  Congress  of  July  1, 1902,  it  was  deemed  advisable  to  do 
this  by  a  temporary  organization  rather  than  to  intrust  it  to  the  bureau 
of  statistics  sufficiently  enlarged  for  the  purpose. 

THE  CENSUS. 

In  conformity  of  the  act  of  Congress  approved  July  1,  1902,  enti- 
tled "An  act  temporarily  to  provide  for  the  administration  of  affairs 
of  civil  government  in  the  Philippine  Islands,  and  for  other  purposes," 
the  Commission,  on  October  6,  1902,  passed  act  No.  467,  to  provide 
for  taking  a  census;  and  on  the  same  day,  by  authority  of  the  Presi- 
dent of  the  United  States,  appointed  Brig.  Gen.  J.  P.  Sanger,  U.  S. 
Army,  director  of  the  census,  and  later,  on  the  16th  of  October, 
appointed  Henr}^  W.  Gannett  and  Victor  H.  Olmstead,  of  Washington, 
D.  C,  assistant  directors. 

The  census  will  include  all  the  islands  and  their  inhabitants  as  far  as 
may  be  practicable. 

The  inquiries  relating  to  the  Christian  tribes  will  be  classified  by 
municipalities  and  barrios,  and  will  include  the  number  of  persons  in 
each  by  name,  color,  sex,  age,  conjugal  condition;  whether  deaf,  dumb, 
blind,  or  insane;  nationality,  citizenship,  occupation,  education,  and 
the  ownership  of  houses.  The  agricultural  schedule  will  inquire  as 
to  the  race  of  owners  and  renters  of  farms  and  plantations,  and  the 
proportion  of  each;  rentals,  and  how  paid;  total  area  of  farms  and 
plantations;  area  cultivated  prior  to  1896,  and  now;  wooded  area  and 
character  of  trees,  as  high  or  low;  number  of  live  stock  of  all  kinds; 
and  the  amount  and  value  of  the  crops  for  1902.  Schedule  No.  3  is 
devoted  to  the  schools,  whether  public,  priv^ate,  or  religious;  scope  of 
instruction,  and  number,  kind,  and  capacity  of  school  buildings; 
amount  paid  in  rentals;  number,  nationality,  and  religion  of  teachers; 
race  and  number  of  free  and  paying  pupils;  average  attendance,  and 
the  number  able  to  speak  and  understand  English  and  Spanish. 
Schedule  No.  -4  will  show  the  mortuary  statistics  of  each  municipality 
in  1902,  as  far  as  may  be.  Schedule  No.  5  will  show  the  social  and 
Schedule  No.  6  the  industrial  statistics  of  each  municipality.  Schedule 
No.  7  is  for  the  non -Christian  and  wild  tribes  and  covers  such  general 
statistics  as  are  probably  obtainable,  but  no  attempt  will  be  made  to 
enumerate  such  tribes  individually,  except  where  they  are  tractable, 
accessible,  and  live  in  compact  communities.  It  is  proposed  to  collect 
the  statistics  of  the  Moros  tJirough  the  commanding  general,  Division 
of  the  Philippines,  and  the  admiral  of  the  navy  commanding,  as  they 
are  under  militaiy  and  naval  control,  it  is  not  practicable  to  determine 
on  what  day  the  census  will  be  taken,  but  it  will  not  be  later  than 
April  1,  1903,  and  possibly  earlier.  Meanwhile,  the  personnel  will 
be  appointed  and  thf)rouglily  instructed,  as  any  attempt  to  instruct 
them  after  the  census  has  been  commenced  will  be  futile. 

THE  OFFICIAL  GAZETTE. 

The  publication  of  an  official  gazette  under  the  general  direction  of 
the  department  of  public  instruction  was  authorized  ])y  an  act  passed 
September  2,  1902.     The  immediate  management  of  this  periodical  is 


in  the  hands  of  an  editor  who  was  appointed  ])y  the  civil  governor,  by 
and  with  the  consent  of  the  Commission,  a 


,  and  who  is  assisted  by  a  num- 


434  REPOHTS    OF    THE    OTVTL    OOVE'R'N'MElSrT 

bor  of  clerks.  It  is  made  the  duty  of  the  editor  to  receive,  collect, 
and  prepare  for  publication  the  various  laws,  orders,  decisions,  and 
other  public  documents  which  it  is  desij^ncd  to  pul)lish  in  the  Gazette; 
also  to  receive  subscriptions  from  private  persons,  corporations,  and 
provincial  and  numicipal  g;ovcrnmcnts;  to  collect  the  amounts  of  such 
subscriptions  and  to  deposit  the  same  in  the  insular  treasury;  to  dis- 
tri])utc  or  cause  to  l)c  distributed  copies  of  the  Gazette  to  the  various 
su])scril)ers;  and  to  perform  such  other  duties  in  connection  with  the 
publication  of  the  periodical  in  question  as  the  secretary  of  public 
instruction  may  direct. 

The  Official  Gazette  is  published  weekly  in  two  parts,  one  part  in 
English  and  the  other  in  Spanish.  It  is  intended  to  include  in  the 
Gazette  all  laws  and  all  resolutions  of  a  public  nature  issued  by  the  insu- 
lar legislature,  all  executive  orders,  certain  decisions  of  the  supreme 
courtlmd  the  court  of  customs  appeals,  or  abstracts  of  such  decisions, 
and  such  other  documents  as  are  usually  published  in  an  official  gazette 
which  may  be  designated  for  publication  by  the  secretary  of  public 
instruction  or  which  may  be  recommended  for  publication  by  the 
editor  and  approved  by  the  secretary  of  public  instruction.  By  the 
wide  circulation  of  this  periodical  it  is  designed  to  convey  to  all  per- 
sons interested,  both  in  the  cities  and  the  provinces,  a  knowledge  of  the 
form  and  operations  of  the  government;  but  there  is  a  real  difficulty 
in  spreading  information  in  these  matters  that  is  not  overcome  by  this 
publication,  for  only  a  comparatively  limited  number  of  the  mature 
persons  in  the  provinces  understand  either  English  or  Spanish.  A 
project  to  issue  the  laws  and  other  public  documents  in  the  dialects 
used  and  understood  by  the  people  was  found  on  consideration  to  be 
impracticable  on  account  of  the  large  number  of  such  dialects.  In  the 
course  of  time,  however,  the  thousands  of  schoolboys  in  the  islands 
who  already  have  a  certain  knowledge  of  English  will  acquire  a  suffi- 
cient proficiency  in  that  language  to  become  the  interpreters  for  the 
people,  and  through  them  much  information  will  be  conveyed  to  that 
large  part  of  the  population  which  now  understands  neither  English 
nor  Spanish,  and  to  whom,  consequently,  the  laws  and  records  of  the 
government  are  a  closed  book. 
Respectfully  submitted. 

Bernard  Moses, 
Secretary  of  Public  histruction. 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  435 


[Public— No.  28.] 

An  Act  Temporarily  to  provide  revenue  for  the  Philippine  Islands, 
and  for  other  purposes. 

Be  it  enacted  hy  the  Senate  and  House  of  Bej^resentatives  of  the  Un  ited 
States  of  America  in  Coiu/ress  assemhled,  That  the  provisions  of  an  Act 
entitled  "An  Act  to  revise  and  amend  the  tariff  laws  of  the  Philippine 
Archipelago,"  enacted  by  the  United  States  Philippine  Commission  on 
the  seventeenth  da}'  of  September,  nineteen  hundred  and  one,  shall  be 
and  remain  in  f idl  force  and  effect,  and  there  shall  be  levied,  collected, 
and  paid  upon  all  articles  coming-  into  the  Philippine  Archipelago  from 
the  United  States  the  rates  of  dutv  which  are  required  by  the  said  Act 
to  be  levied,  collected,  and  paid  upon  like  articles  irajjorted  from  foreign 
countries  into  said  archipelago. 

Sec.  2.  That  on  and  after  the  passage  of  this  Act  there 'shall  be  levied, 
collected,  and  paid  upon  all  articles  coming  into  the  United  States  from 
the  Philippine  Archipelago  the  rates  of  duty  which  are  required  to_  be 
levied,  collected,  and  paid  upon  like  articles  imported  from  foreign 
countries:  Provided^  That  upon  all  articles  the  growth  and  product  of 
the  Philippine  Archipelago  coming  into  the  United  States  from  the 
Philippine  Archipelago  there  shall  be  levied,  collected,  and  paid  only 
sevent3'-five  per  centum  of  the  rates  of  duty  aforesaid:  And  jyro- 
vided  further^  That  the  rates  of  duty  which  are  required  hereby  to  be 
levied,  collected,  and  paid  upon  products  of  the  Philippine  Archipelago 
coming  into  the  United  States  shall  be  less  any  duty  or  taxes  levied, 
collected,  and  paid  thereon  upon  the  shipment  thereof  from  the  Philip- 
pine Archipelago,  as  provided  by  the  Act  of  the  United  States  Philippine 
Commission  referred  to  in  section  one  of  this  Act,  under  such  rules  and 
regulations  as  the  Secretary  of  the  Treasury  may  prescribe,  but  all 
articles,  the  growth  and  product  of  the  Philippine  Islands,  admitted 
into  the  ports  of  tlie  United  States  free  of  duty  under  the  provisions 
of  this  Act  and  coming  directly  from  said  islands  to  the  United  States 
for  use  and  consumption  therein,  shall  be  hereafter  exempt  from  any 
export  duties  imposed  in  the  Philippine  Islands. 

Sec.  3.  That  on  and  after  the  passage  of  this  Act  the  same  tonnage 
taxes  shall  be  levied,  collected,  and  paid  upon  all  foreign  vessels  com- 
ing into  the  United  States  from  the  Philippine  Archipelago  wiiich  are 
required  by  law  to  be  levied,  collected,  and  paid  upon  vessels  coming 
into  the  United  States  from  foreign  countries:  Provided,  however,^ 
That  until  July  first,  nineteen  hundred  and  four,  the  provisions  of 
law  restricting  to  vessels  of  the  United  Sttites  the  transportation 
of  passengers  and  merchandise  directly  or  indirectly  from  one  port 
of  the  United  States  to  another  port^of  the  United  States  shall  not 
be  applicable  to  foreign  resscls  engaging  in  trade  l>etween  the 
Philippine  Archipelago  and  the  United  States,  or  between  ports  in 
the  Philippine  KYi'\\\\)(i\fi<^(y.  A))d  provided  further, 'U\\\.t  the  Philip- 
pine Commission  shall  be  authorized  and  ein])owered  to  issue  licenses 
to  engage  in  lighterage  or  other  exclusiv(>ly  harl)or  business  to  vessels 
or  other  craft'^actuallv  engaged  in  such  l)usiness  at  the  date  of  the 
passage  of  this  Act,  aiid  to  vessels  or  other  crart  built  in  the  PhiUippuie 


430  REPORTS    OF   THE    CIVIL    GOVERNMENT 

Islands  or  in  the  United  States  and  owned  by  citizens  of  the  United 
States  or  bv  iniiabitants  of  the  Philippine  Islands. 

Sec.  -k  'riiat  the  duties  and  taxes  collected  in  the  Philippine  Archi- 
pelago in  pursujincc  of  this  Act,  and  all  duties  and  taxes  collected  in 
the  Tnited  States  upon  articles  coming  from  the  Philippine  Archi- 
pelago and  upon  foreign  vessels  coming  therefrom,  shall  not  be  cov- 
ered into  the  general  fund  of  the  Treasury  of  the  United  States,  but 
shall  be  held  as  a  separate  fund  and  paid  into  the  treasury  of  the 
Philippine  Islands,  to  be  used  and  expended  for  the  government  and 
benefit  of  said  islands. 

Sec.  5.  That  when  duties  prescribed  by  this  Act  are  based  upon  the 
weight  of  merchandise  deposited  in  any  public  or  private  bonded 
warehouse,  said  duties  shall  be  levied  and  collected  upon  the  weight 
of  such  merchandise  at  the  time  of  its  entr}'. 

Sec.  6.  That  all  articles  manufactured  in  bonded  manufacturing 
warehouses  in  whole  or  in  part  of  imported  materials,  or  of  materials 
subject  to  internal-revenue  tax  and  intended  for  shipment  from  the 
United  States  to  the  Philippine  Islands,  shall,  Avhen  so  shipped,  under 
such  regulatioHs  as  the  Secretary  of  the  Treasury  may  prescribe,  be 
exempt  from  internal-revenue  tax,  and  shall  not  be  charged  wdth  duty 
except  the  duty  levied  under  this  Act  upon  imports  into  the  Philippine 
Islands. 

That  all  articles  subject  under  the  laws  of  the  United  States  to  inter- 
nal-revenue tax,  or  on  which  the  internal-revenue  tax  has  been  paid, 
and  which  may  under  existing  laws  and  regulations  be  exported  to  a 
foreign  country  without  the  payment  of  such  tax,  or  with  benefit  of 
drawback,  as  the  case  may  be,  may  also  be  shipped  to  the  Philippine 
Islands  with  like  privilege,  under  such  regulations  and  the  filing  of 
such  bonds,  bills  of  lading,  and  other  security  as  the  Commissioner  of 
Internal  Revenue  may,  with  the  approval  of  the  Secretary  of  the 
Treasury,  prescribe.  And  all  taxes  paid  upon  such  articles  shipped 
to  the  Philippine  Islands  since  November  fifteenth,  nineteen  hundred 
and  one,  under  the  decision  of  the  Secretary  of  the  Treasury  of  that 
date,  shall  be  refunded  to  the  parties  who  have  paid  the  same,  under  such 
rules  and  regulations  as  the  Secretary  of  the  Treasury  may  prescribe, 
and  a  sum  sufficient  to  make  such  payment  is  hereby  appropriated, 
out  of  any  money  in  the  Treasury  not  otherwise  appropriated. 

That  where  materials  on  which  duties  have  been  paid  are  used  in  the 
manufacture  of  articles  manufactured  or  produced  in  the  United  States, 
there  shall  be  allowed  on  the  shipment  of  said  articles  to  the  Philippine 
Archipelago  a  drawback  equal  in  amount  to  the  duties  paid  on  the  mate- 
rials used,  less  one  per  centum  of  such  duties,  under  such  rules  and 
regulations  as  the  Secretary  of  the  Treasury  may  prescribe. 

Sec.  7.  That  merchandise  in  bonded  warehouse  or  otherwise  in  the 
custody  and  control  of  the  ofiicers  of  the  customs,  upon  which  duties 
have  been  paid,  shall  be  entitled,  on  shipment  to  the  Philippine  Islands 
within  three  years  from  the  date  of  the  original  arrival,  to  a  return  of 
the  duties  paid  less  one  per  centum,  and  merchandise  upon  which  duties 
have  not  been  paid  may  be  shipped  without  the  payment  of  duties  to 
the  Philippine  Islands  within  said  period,  under  such  rules  and  regula- 
tions as  may  be  prescribed  b}^  the  Secretary  of  the  Treasury. 

Sec.  8.  That  the  provisions  of  the  Act  entitled  "An  Act  to  simplify 
the  laws  in  relation  to  the  collection  of  revenues,"  approved  June 
tenth,  eighteen  hundred  and  ninety,  as  amended  by  an  Act  entitled 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  437 

"An  Act  to  provide  for  the  Government  and  to  encourage  the  indus- 
tries of  the  United  States,"  approved  July  twenty-fourth,  eighteen 
hundred  and  ninet3"-seven,  shall  apply  to  all  articles  coming  into  the 
United  States  from  the  Philippine  Archipelago. 

Sec.  9.  That  no  person  in  the  Philippine  Islands  shall,  under  the 
authorit}^  of  the  United  States,  be  convicted  of  treason  bj^  any  tribunal, 
civil  or  military,  unless  on  the  testimon}"  of  two  witnesses  to  the  same 
overt  act,  or  on  confession  in  open  court. 

Approved,  March  8,  1902. 


488  REPORTS   OF   THE    CIVIL    OOVP^liNMENT 


[Public— No.  235.] 

An  Act  Temporarily  to  provide  for  the  administration  of  the  affairs 
of  civil  government  in  the  Philippine  Islands,  and  for  other  purposes. 

Be  it  enactedhy  the  Senate  and  House  of  Representatives  of  tlie  United 
States  of  Ainerlca  in  Congress  asseinbled..  That  the  action  of  the 
President  of  the  United  States  in  creating  the  Philippine  Commis- 
sion and  authorizing  said  Commission  to  exercise  the  powers  of  gov- 
ernment to  the  extent  and  in  the  manner  and  form  and  subject  to 
the  regulation  and  control  set  forth  in  the  instructions  of  the  Presi- 
dent to  the  Philippine  Commission,  dated  April  seventh,  nineteen  hun- 
dred, and  in  creating  the  offices  of  civil  governor  and  vice-governor 
of  the  Philippine  Islands,  and  authorizing  said  civil  governor  and 
vice-governor  to  exercise  the  powers  of  government  to  the  extent  and 
in  the  manner  and  form  set  forth  in  the  Executive  order  dated  June 
twent^'-first,  nineteen  hundred  and  one,  and  in  establishing  four  exec- 
utive departments  of  government  in  said  Islands  as  set  forth  in  the 
Act  of  the  Philippine  Commission,  entitled  "An  Act  providing  an 
organization  for  the  departments  of  the  interior,  of  commerce  and 
police,  of  finance  and  justice,  and  of  public  instruction,"  enacted  Sep- 
tember sixth,  nineteen  hundred  and  one,  is  hereby  approved,  ratified, 
and  confirmed,  and  until  otherwise  provided  by  law  the  said  Islands 
shall  continue  to  be  governed  as  thereby  and  herein  provided,  and  all 
laws  passed  hereafter  by  the  Philippine  Commission  shall  have  an 
enacting  clause  as  follows:  "By  authorit}^  of  the  United  States  be  it 
enacted  by  the  Philippine  Commission."  The  provisions  of  section 
eighteen  hundred  and  ninety-one  of  the  Revised  Statutes  of  eighteen 
hundred  and  seventy-eight  shall  not  apply  to  the  Philippine  Islands. 

Future  appointments  of  civil  governor,  vice-governor,  members  of 
said  Commission  and  heads  of  executive  departments  shall  be  made 
hj  the  President,  ])y  and  with  the  advice  and  consent  of  the  Senate. 

Sec.  2.  That  the  action  of  the  President  of  the  United  States  here- 
tofore taken  by  virtue  of  the  authority  vested  in  him  as  Commander 
in  Chief  of  the  Army  and  Navy,  as  set  forth  in  his  order  of  July 
twelfth,  eighteen  hundred  and  ninety-eight,  whereby  a  tariff  of  duties 
and  taxes  as  set  forth  by  said  order  was  to  be  levied  and  collected  at 
all  ports  and  places  in  the  Philippine  Islands  upon  passing  into  the 
occupation  and  possession  of  the  forces  of  the  United  States,  together 
with  the  subsequent  amendments  of  said  order,  are  hereby  approved, 
ratified,  and  confirmed,  and  the  actions  of  the  authorities  of  the  gov- 
ernment of  the  Philippine  Islands,  taken  in  accordance  with  the  pro- 
visions of  said  order  and  subsequent  amendments,  are  hereby  approved: 
Provided^  That  nothing  contained  in  this  section  shall  be  held  to  amend 
or  repeal  an  Act  entitled  "An  Act  temporarily  to  provide  revenue  for 
the  Philippine  Islands,  and  for  other  purposes,"  approved  March  eighth, 
nineteen  hundred  and  two. 

Sec.  3.  That  the  President  of  the  United  States,  during  such  time 
as  and  whenever  the  sovereignty  and  authority  of  the  United  States 
encounter  armed  resistance  in  the  Philippine  Islands,  mitil  otherwise 
provided  by  Congress,  shall  continue  to  regulate  and  control  commer- 


OF    THP:    PHILIPPINE    ISLANDS,   1900-1903.  439 

cial  intercourse  with  and  within  said  Islands  b}'  such  general  rules  and 
regulations  as  he,  in  his  discretion,  ma}^  deem  most  conducive  to  the 
public  interests  and  the  general  welfare. 

Sec.  4.  That  all  inhabitants  of  the  Philippine  Islands  continuing  to 
reside  therein  who  were  Spanish  subjects  on  the  eleventh  da}'  of  April, 
eighteen  hundred  and  ninety-nine,  and  then  resided  in  said  Islands, 
and  their  children  born  su])sequent  thereto,  shall  be  deemed  and  held 
to  be  citizens  of  the  Philippine  Islands  and  as  such  entitled  to  the  pro- 
tection of  the  United  States,  except  such  as  shall  have  elected  to  pre- 
serve their  allegiance  to  the  Crown  of  Spain  in  accordance  with  the 
provisions  of  the  treat}'  of  peace  between  the  United  States  and  Spain 
signed  at  Paris  December  tenth,  eighteen  hundred  and  ninety-eight. 

Sec.  5.  That  no  law  shall  be  enacted  in  said  islands  which  shall 
deprive  an}"  person  of  life,  liberty,  or  property  witliout  due  process  of 
law,  or  deny  to  any  person  therein  the  equal  protection  of  the  laws. 

That  in  all  criminal  prosecutions  the  accused  shall  enjoy  the  right  to 
be  heard  by  himself  and  counsel,  to  demand  the  nature  and  cause  of 
the  accusation  against  him,  to  have  a  speedy  and  public  trial,  to  meet 
the  witnesses  face  to  face,  and  to  have  compulsory  process  to  compel 
the  attendance  of  witnesses  in  his  behalf. 

That  no  person  shall  be  held  to  answer  for  a  criminal  offense  with- 
out due  process  of  law;  and  no  person  for  the  same  offense  shall  be 
twice  put  in  jeopardy  of  punishment,  nor  shall  l)e  compelled  in  any 
criminal  case  to  be  a  witness  against  himself. 

That  all  persons  shall  before  conviction  bo  })ailable  by  sufficient 
sureties,  except  for  capital  offenses. 

That  no  law  impairing  the  obligation  of  contracts  shall  be  enacted. 

That  no  person  shall  be  imprisoned  for  debt. 

That  the  privilege  of  the  writ  of  habeas  corpus  shall  not  be  sus- 
pended, unless  when  in  cases  of  rebellion,  insurrection,  or  invasion 
the  public  safety  may  require  it,  in  cither  of  which  events  the  same 
may  be  suspended  by  the  President,  or  by  the  governor,  with  the 
approval  of  the  Philippine  Commission,  wherever  during  such  period 
the  necessity  for  such  suspension  shall  exist. 

That  no  ex  post  facto  law  or  bill  of  attainder  shall  l)e  enacted. 

That  no  law  granting  a  title  of  nobility  shall  be  enacted,  and  no  per- 
son holding  any  office  of  profit  or  trust  in  said  islands,  shall,  without 
the  consent  of  the  Congress  of  the  United  States,  accept  any  present, 
emolument,  office,  or  title  of  any  kind  whatever  from  any  king,  queen, 
prince,  or  foreign  State. 

That  excessive  bail  shall  not  ])e  required,  nor  excessive  fines 
imposed,  nor  cruel  and  unusual  punishment  indicted. 

That  the  right  to  be  secure  against  unreasonable  searches  and 
seizures  shall  not  be  violated. 

That  neither  slavery,  nor  involuntary  servitude,  except  as  a  punish- 
ment for  crime  whereof  the  party  shall  have  l)een  duly  convicted, 
shall  exist  in  said  islands. 

That  no  law  shall  be  passed  abridging  tiie  freedom  of  speec^h  oi-  of 
the  press,  or  the  right  of  the  people  peaceably  to  assemble  and  petition 
the  Government  for  redress  of  grievances. 

That  no  law  shall  be  made  respecting  an  establishment  of  religion  or 
prohi})iting  the  free  exercise  thereof,  and  tliat  the  free  exercise  and 
enjoyment  of  religious  i)i-ofession  and  worship,  without  discrimination 
or  preference,  shall  foievi'r  be  allowed. 


440  REPORTS    OF    THE    CIVIL    GOVERNMENT 

That  no  monc}'^  sliall  be  paid  out  of  the  ti'easury  except  in  pursuance 
of  an  appropriation  b}'  hiw. 

That  the  rule  of  taxation  in  said  islands  shall  be  uniform. 

That  no  private  or  local  bill  which  may  be  enacted  into  law  shall 
embrace  more  than  one  subject,  and  that  subject  shall  be  expressed  in 
the  title  of  the  bill. 

That  no  warrant  sliall  issue  ])ut  upon  probable  cause,  supported  by 
oath  or  atlirmation,  and  j)articularly  describing  the  place  to  be  searched 
and  the  jierson  or  things  to  be  seized. 

That  all  money  collected  on  an}^  tax  levied  or  assessed  for  a  special 
purpose  shall  be  treated  as  a  special  fund  in  the  treasury  and  paid  out 
for  such  purpose  only. 

Sec.  6.  That  whenever  the  existing  insurrection  in  the  Philippine 
Islands  shall  have  ceased  and  a  condition  of  general  and  complete 
peace  shall  have  been  established  therein  and  the  fact  shall  be  certified 
to  the  President  b}^  the  Philippine  Commission,  the  President,  upon 
being  satislied  thereof,  shall  order  a  census  of  the  Philippine  Islands 
to  be  taken  by  said  Philippine  Commission;  such  census  in  its  inquiries 
relating  to  the  population  shall  take  and  make  so  far  as  practicable 
full  report  for  all  the  inhabitants,  of  name,  age,  sex,  race,  or  tribe, 
whether  native  or  foreign  born,  literacy  in  Spanish,  native  dialect  or 
language,  or  in  English,  school  attendance,  ownership  of  homes,  indus- 
trial and  social  statistics,  and  such  other  information  separately  for 
each  island,  each  province,  and  municipality,  or  other  civil  division, 
as  the  President  and  said  Commission  may  deem  necessary:  Provided, 
That  the  President  ma}^,  upon  the  request  of  said  Commission,  in  his 
discretion,  employ  the  service  of  the  Census  Bureau  in  compiling  and 
promulgating  the  statistical  information  above  provided  for,  and  ma}' 
commit  to  such  Bureau  any  part  or  portion  of  such  labor  as  as  to  him 
ma}"  seem  wise. 

Sec.  7.  That  two  years  after  the  completion  and  publication  of  the 
census,  in  case  such  condition  of  general  and  complete  peace  with 
recognition  of  the  authority  of  the  United  States  shall  have  contin- 
ued in  the  territory  of  said  Islands  not  inhabited  by  Moros  or  other 
non-Christian  tribes  and  such  facts  shall  have  been  certified  to  the 
President  by  the  Philippine  Commission,  the  President  upon  being 
satisfied  thereof  shall  direct  said  Commission  to  call,  and  the  Commis- 
sion shall  call,  a  general  election  for  the  choice  of  delegates  to  a  popu- 
lar assembly  of  the  people  of  said  territory  in  the  Philippine  Islands, 
which  shall  be  known  as  the  Philippine  assembly.  After  said  assembly 
shall  have  convened  and  organized,  all  the  legislative  power  heretofore 
conferred  on  the  Philippine  Commission  in  all  that  part  of  said  Islands 
not  inhabited  by  Moros  or  other  non- Christian  tribes  shall  be  vested 
in  a  legislature  consisting  of  two  houses — The  Philippine  Commission 
and  the  Philippine  assembly.  Said  assembly  shall  consist  of  not  less 
than  fifty  nor  more  than  one  hundred  members  to  be  apportioned  by 
said  Commission  among  the  provinces  as  nearly  as  practicable  accord- 
ing to  population:  Provided,  That  no  province  shall  have  less  than  one 
member:  And 2?rovided  further.  That  provinces  entitled  by  population 
to  more  than  one  member  may  be  divided  into  such  convenient  dis- 
tricts as  the  said  Commission  may  deem  best. 

Pul)lic  notice  of  such  division  shall  be  given  at  least  ninety  days 
prior  to  such  election,  and  the  election  shall  be  held  under  rules  and 
regulations  to  be  prescribed  by  law.     The  qualification  of  electors  in 


OF    THE    PHILIPriNE    ISLANDS,   1900-1903.  441 

such  election  shall  bo  the  same  as  is  now  provided  by  law  in  case  of 
electors  in  municipal  elections.  The  members  of  assembl}'  shall  hold 
office  for  two  j'ears  from  the  first  day  of  Januar}-  next  following  their 
election,  and  their  successors  shall  be  chosen  by  the  people  every 
second  year  thereafter.  No  person  shall  be  eligible  to  such  election 
who  is  not  a  qualified  elector  of  the  election  district  in  which  he  may 
be  chosen,  owing  allegiance  to  the  United  States,  and  twenty-five  3'ears 
of  age. 

The  legislature  shall  hold  annual  sessions,  commencing  on  the  first 
Monday  of  Februar}-  in  each  3  ear  and  continuing  not  exceeding  ninety 
days  th^ereafter  (Sundays  and  holidays  not  included):  Provided,  That 
the  first  meeting  of  the  legislature  shall  be  held  upon  the  call  of  the 
governor  within  ninety  daj^s  after  the  first  election:  A7id  jjrovided 
further,  That  if  at  the  termination  of  any  session  the  appropriations 
necessary  for  the  support  of  government  shall  not  have  been  made, 
an  amount  equal  to  the  sums  appropriated  in  the  last  appropriation 
bills  for  such  purposes  shall  be  deemed  to  be  appropriated;  and  until 
the  legislature  shall  act  in  such  behalf  the  treasurer  may,  with  the 
advice  of  the  governor,  make  the  payments  necessary  for  the  purposes 
aforesaid. 

The  legislature  mav  be  called  in  special  session  at  an}^  time  by  the 
civil  governor  for  general  legislation,  or  for  action  on  such  specific 
subjects  as  he  may  designate.  No  special  session  shall  continue  longer 
than  thirty  days,  exclusive  of  Sundays. 

The  assembly  shall  be  the  judge  of  the  elections,  returns,  and  quali- 
fications of  its  members.  A  majority  shall  constitute  a  quorum  to  do 
business,  but  a  smaller  number  may  adjourn  from  day  to  day  and  may 
be  authorized  to  compel  the  attendance  of  absent  members.  It  shall 
choose  its  speaker  and  other  officers,  and  the  salaries  of  its  members 
and  officers  shall  be  fixed  by  law.  It  may  determine  the  rule  of  its 
proceedings,  punish  its  members  for  disorderly  behavior,  and  with  the 
concurrence  of  two-thirds  expel  a  member.  It  shall  keep  a  journal  of 
its  proceedings,  which  shall  be  published,  and  the  yeas  and  nays  of 
the  members  on  any  question  shall,  on  the  demand  of  one-fifth  of  those 
present,  be  entered  on  the  journal. 

Sec.  8.  That  at  the  same  time  with  the  first  meeting  of  the  Philip- 
pine legislature,  and  biennially  thereafter,  there  shall  be  chosen  by 
said  legislature,  each  house  voting  separately,  two  resident  commis- 
sioners to  the  United  States,  who  A\\\\\  bo  entitled  to  an  official  recog- 
nition as  such  by  all  departments  upon  presentation  to  the  President 
of  a  certificate  of  election  by  the  civil  governor  of  said  islands,  and 
each  of  whom  shall  be  entitled  to  a  salary  payable  monthly  by  the 
United  States  at  the  rate  of  five  thousand  dollars  per  annum,  and  two 
thousand  dollars  additional  to  cover  all  expenses:  Pr<)vid(<L  That  no 
person  shall  be  eligible  to  such  election  who  is  not  a  qualili(>(l  elector 
of  said  islands,  owing  allegiance  to  the  United  States,  and  who  is  not 
thirty  years  of  age. 

Sec.  1).  That  the  Supreme  Court  and  the  courts  of  first  instance  of 
the  Philippine  Islands  shall  possess  and  exercise  jurisdiction  as  here- 
tofore provided  and  such  additional  jurisdiction  as  shall  hereafter  be 
prescribed  by  the  government  of  said  Islands,  subject  to  the  power  of 
said  Government  to  change  the  practice  and  method  of  procedure. 
The  municipal  courts  of  said  Islands  shall  possess  and  exercise  juris- 
diction as  heretofore  provided  by  the  Philippine  Connnission,  subject 


442  KEPOETS    OF   TUK    CIVIL    GOVERNMENT 

ill  I'll  matters  to  such  alteration  and  amendment  as  may  be  hereafter 
enacted  by  hiw;  and  the  chief  justice  and  associate  justices  of  the 
sui)renic  court  shall  hereafter  be  appointed  by  the  President,  by  and 
with  the  adyicc  and  consent  of  the  Senate,  and  shall  receiye  the  com- 
pensation heretofore  prescribed  by  the  Connnission  until  otherwise 
proyided  by  Congress.  The  judges  of  the  court  of  tirst  instance  shall 
be  appointed  by  the  ciyil  governor,  by  and  with  the  advice  and  con- 
sent of  the  Philippine  Connnission':  Provided,  That  the  admiralty  juris- 
diction of  the  supreme  court  and  courts  of  lirst  instance  shall  not  be 
changed  except  by  Act  of  Congress. 

Sec.  10.  That  the  Supreme  Court  of  the  United  States  shall  have 
jurisdiction  to  review,  revise,  reyerse,  modify,  or  affirm  the  linal  judi^-- 
nuMits  and  decrees  of  the  supreme  court  of  the  Philippine  Islands  in 
all  actions,  cases,  causes,  and  proceedings  now  pending  therein  or  here- 
after determined  thereby  in  which  the  Constitution  or  any  statute, 
treaty,  title,  right,  or  privilege  of  the  United  States  is  involved,  or  in 
causes  in  which  the  value  in  controversy  exceeds  twenty-five  thousand 
dollars,  or  in  which  the  title  or  possession  of  real  estate  exceeding  in 
value  the  sum  of  twenty -five  thousand  dollars,  to  be  ascertained  by  the 
oath  of  either  party  or  of  other  competent  witnesses,  is  involved  or 
brought  in  question;  and  such  final  judgments  or  decrees  may  and  can 
be  reviewed,  revised,  reversed,  modified,  or  affirmed  by  said  Supreme 
Court  of  the  United  States  on  appeal  or  writ  of  error  by  the  party 
aggrieved,  in  the  same  manner,  under  the  same  regulations,  and  by  the 
same  procedure,  as  far  as  applicable,  as  the  final  judgments  and  decrees 
of  the  circuit  courts  of  the  United  States. 

Sec.  11.  That  the  government  of  the  Philippine  Islands  is  hereby 
authorized  to  provide  for  the  needs  of  commerce  by  improving  the 
harbors  and  navigable  waters  of  said  islands  and  to  construct  and 
maintain  in  said  navigable  waters  and  upon  the  shore  adjacent  thereto 
bonded  warehouses,  wharves,  piers,  light-houses,  signal  and  life-saving 
stations,  buoys,  and  like  instruments  of  commerce,  and  to  adopt  and 
enforce  regulations  in  regard  thereto,  including  bonded  warehouses 
wherein  articles  not  intended  to  be  imported  into  said  -islands  nor 
mingled  with  the  property  therein,  but  brought  into  a  port  of  said 
islands  for  reshipment  to  another  country,  may  be  deposited  in  bond 
and  reshipped  to  another  country  without  the  payment  of  customs 
duties  or  charges. 

Sec.  12.  That  all  the  property  and  rights  which  may  have  been 
acquired  in  the  Philippine  Islands  by  the  United  States  under  the 
treaty  of  peace  with  Spain,  signed  December  tenth,  eighteen  hundred 
and  ninety-eight,  except  such  land  or  other  property  as  shall  bo  desig- 
nated by  the  President  of  the  United  States  for  military  and  other 
reservations  of  the  Government  of  the  United  States,  are  hereby  i)laced 
under  the  control  of  the  government  of  said  islands  to  be  administered 
for  the  benefit  of  the  inhabitants  thereof,  except  as  provided  in  this  Act. 

Sec.  13.  That  the  government  of  the  Philippine  Islands,  subject  to 
the  provisions  of  this  Act  and  except  as  herein  provided,  shall  classify 
according  to  its  agricultural  (;haracter  and  productiveness,  and  shall 
immediately  make  rules  and  regulations  for  the  lease,  sale,  or  other 
disposition  of  tlie  public  lands  other  than  timber  or  mineral  lands,  but 
such  rules  and  regulations  shall  not  go  into  effect  or  have  the  force  of 
law  until  they  have  received  the  approval  of  the  President  and  when 
appro\  cd  by  the  President  they  shall  be  submitted  by  him  to  Congress 


OF   THE    PHILIPPINE    ISLANDS,   1900-1903.  443 

at  the  beginning  of  the  next  ensuing  session  thereof  and  unless  dis- 
approved or  amended  by  Congress  at  said  session  the}^  shall  at  the 
close  of  such  period  have  the  force  and  effect  of  law  in  the  Philippine 
Islands:  Provided,  That  a  single  homestead  entry  shall  not  exceed 
sixteen  hectares  in  extent. 

Sec.  14.  That  the  government  of  the  Philippine  Islands  is  hereby 
authorized  and  empowered  to  enact  rules  and  regulations  and  to  pre- 
scribe terms  and  conditions  to  enable  persons  to  perfect  their  title  to 
public  lands  in  said  Islands^  who,  prior  to  the  transfer  of  sovereignty 
from  Spain  to  the  United  States,  had  fulfilled  all  or  some  of  the  con- 
ditions required  b}^  the  Spanish  laws  and  royal  decrees  of  the  King- 
dom of  Spain  for  the  acquisition  of  legal  title  thereto  yet  failed  to 
secure  conve3^ance  of  title;  and  the  Philippine  Commission  is  author- 
ized to  issue  patents,  without  compensation,  to  any  native  of  said 
Islands,  convejing  title  to  an}^  tract  of  land  not  more  than  sixteen 
hectares  in  extent,  which  were  public  lands  and  had  been  actually 
occupied  by  such  native  or  his  ancestors  prior  to  and  on  the  thirteenth 
of  August,  eighteen  hundred  and  ninet3'-eight. 

Sec.  15.  That  the  government  of  the  Philippine  Islands  is  hereby 
authorized  and  empowered,  on  such  terms  as  it  ma}^  prescribe,  by 
general  legislation,  to  provide  for  the  granting  or  sale  and  convcA'ance 
to  actual  occupants  and  settlers  and  other  citizens  of  said  islands  such 
parts  and  portions  of  the  public  domain,  other  than  timber  and  min- 
eral lands,  of  the  United  States  in  said  islands  as  it  may  deem  wise, 
not  exceeding  sixteen  hectares  to  any  one  person  and  for  the  sale  and 
conve3'ance  of  not  more  than  one  thousand  and  twenty -four  hectares 
to  any  corporation  or  association  of  persons:  Provided,  That  the  grant 
or  sale  of  such  lands,  whether  the  purchase  price  be  paid  at  once  or  in 
partial  payments,  shall  })e  conditioned  upon  actual  and  continued  occu- 
pancy, improvement,  and  cultivation  of  the  premises  sold  for  a  period 
of  not  li^ss  tlian  five  years,  during  which  time  the  purchaser  or  grantee 
can  not  alienate  or  encumber  said  land  or  the  title  thereto;  but  such 
restriction  shall  not  apph'  to  transfers  of  rights  and  title  of  inherit- 
ance under  the  laws  for  the  distribution  of  the  estates  of  decedents. 

Sec.  16.  That  in  granting  or  selling  an}'  part  of  the  pul)lic  domain 
under  the  provisions  of  the  last  preceding  section,  preference  in  all 
cases  shall  be  given  to  actual  occupants  and  settlers;  and  such  public 
lands  of  the  United  States  in  the  actual  possession  or  occupancy  of 
any  native  of  the  Philippine  Islands  shall  not  be  sold  b}'  said  govern- 
ment to  anv  other  person  without  the  consent  thereto  of  said  prior 
occupant  or  settler  first  had  and  ol)tained:  Provided,  That  tlic  prior 
right  hereby  secured  to  an  occupant  of  land,  who  can  show  no  other 
proof  of  title  than  possession,  shall  not  apply  to  more  than  sixteen 
hectares  in  an}-  one  tract. 

Sec.  17.  That  timber,  trees,  forests,  and  forest  products  on  lands 
leased  or  demised  by  the  government  of  the  Philippine  Islands  under 
the  provisions  of  this  Act  shall  not  be  cut,  destroyed,  removed,  or 
appropriated  except  by  special  permission  of  said  government  and 
under  such  regulations  as  it  may  prescribe. 

All  moneys  obtained  from  lease  or  sale  of  any  portion  of  the  puldic 
domain  or  from  licenses  to  cut  timber  by  the  government  of  the 
Philippine  Islands  shall  be  covered  into  the  insular  treasury  and  be 
subject  only  to  appropriation  for  insular  purposes  according  to  law. 

Sec.  is.  That  the  forest  laws  and  regulations  now  in  force  in  the 
Philippine  Islands,  with  such  modifications  and  amendments  as  may  be 


444  REPUKTS    OF    THE    CIVIL    GOVERNMENT 

made  by  tlie  government  of  said  islands,  arc  hereby  continued  in  force, 
and  no  timber  lands  forming"  part  of  the  i)ublic  domain  shall  be  sold, 
leased,  or  entered  until  the  government  of  said  islands,  upon  the  eer- 
titication  ot"  the  forestry  ])ureau  that  said  lands  are  more  valuable  for 
agriculture  than  for  forest  uses,  shall  declare  such  lands  so  certitied  to 
be  agricultural  in  character:  Provided.,  That  the  said  government  shall 
have  the  right  and  is  hereb}'  empowered  to  issue  licenses  to  cut,  har- 
vest, or  collect  timber  or  other  forest  products  on  reserved  or  unre- 
served public  lands  in  said  islands  in  accordance  with  the  forest  laws 
and  regulations  hereinbefore  mentioned  and  under  the  provisions  of 
this  Act,  and  the  said  government  may  lease  land  to  any  person  or 
persons  holding  such  licenses,  sufficient  for  a  mill  site,  not  to  exceed 
four  hectares  in  extent,  and  may  grant  rights  of  way  to  enable  such 
person  or  persons  to  get  access  to  the  lauds  to  which  such  licenses 
api^^ly. 

Sec.  19.  That  the  beneficial  use  shall  be  the  basis,  the  measure,  and 
the  liujit  of  all  rights  to  water  in  said  islands,  and  the  government  of 
said  islands  is  hereby  authorized  to  make  such  rules  and  regulations 
for  the  use  of  water,  and  to  make  such  reservations  of  public  lands  for 
the  protection  of  the  water  supply,  and  for  other  public  purposes  not 
in  conflict  w'ith  the  provisions  of  this  Act,  as  it  may  deem  best  for  the 
public  good. 

MINERAL   LANDS. 

Sec.  20.  That  in  all  cases  public  lands  in  the  Philippine  Islands  val- 
uable for  minerals  shall  be  reserved  from  sale,  except  as  otherwise 
expressly  directed  l)v  law. 

Sec.  21.  That  all  valuable  mineral  deposits  in  public  lands  in  the 
Philippine  Islands,  both  surveyed  and  unsurveyed,  are  hereby  declared 
to  be  free  and  open  to  exploration,  occupation,  and  purchase,  and  the 
land  in  which  they  are  found  to  occupation  and  purchase,  by  citizens 
of  the  United  States,  or  of  said  Islands:  Provided.,  That  when  on  any 
lands  in  said  islands  entered  and  occupied  as  agricultural  lands  under 
the  provisions  of  this  Act,  but  not  patented,  mineral  deposits  have 
been  found,  the  working  of  such  mineral  deposits  is  hereby  forbidden 
until  the  person,  association,  or  corporation  who  or  which  has  entered 
and  is  occupying  such  lands  shall  have  paid  to  the  government  of  said 
islands  such  additional  sum  or  sums  as  will  make  the  total  amount 
paid  for  the  mineral  claim  or  claims  in  which  said  deposits  are  located 
equal  to  the  amount  charged  by  the  government  for  the  same  as  min- 
eral claims. 

Sec.  22.  That  mining  claims  upon  land  containing  veins  or  lodes  of 
quartz  or  other  rock  in  place  bearing  gold,  silver,  cinnabar,  lead,  tin, 
copper,  or  other  valuable  deposits,  located  after  the  passage  of  this 
Act,  whether  located  by  one  or  more  persons  qualified  to  locate  the 
same  under  the  preceding  section,  shall  be  located  in  the  following 
manner  and  under  the  following  conditions:  Any  person  so  qualified 
desiring  to  locate  a  mineral  claim  shall,  subject  to  the  provisions  of 
this  Act  with  respect  to  land  which  may  be  used  for  mining,  enter 
upon  the  same  and  locate  a  plot  of  ground  measuring,  where  possible, 
but  not  exceeding,  one  thousand  feet  in  length  by  one  thousand  feet 
in  ))readth,  in  as  nearly  as  possible  a  rectangular  form;  that  is  to  say: 
All  angles  shall  be  right  angles,  except  in  cases  where  a  boundary 
line  of  a  previously  surveyed  claim  is  adopted  as  common  to  both 
claims,  but  the  lines  need  not  necessarily  be  meridional.     In  defining 


OF   THE    PHILIPPINE    ISLANDS,   1900-1903. 


445 


the  size  of  a  mineral  claim,  it  shall  be  measured  horizontally,  irrespec- 
tive of  inequalities  of  the  surface  of  the  ground. 

Sec.  23.  That  a  mineral  claim  shall  be  marked  by  two  posts  placed 
as  nearl}"  as  possible  on  the  line  of  the  ledge  or  vein,  and  the  posts 
shall  be  numbered  one  and  two,  and  the  distance  between  posts  num- 
bered one  and  two  shall  not  exceed  one  thousand  feet,  the  line  between 
posts  numbered  one  and  two  to  be  known  as  the  location  line;  and 
upon  posts  numbered  one  and  two  shall  be  written  the  name  given  to 
the  mineral  claim,  the  nara^  of  the  locator,  and  the  date  of  the  loca- 
tion. Upon  post  numbered  one  there  shall  be  written,  in  addition  to 
the  foregoing,  "Initial  post,''  the  approximate  compass  bearing  of 
post  numbered  two,  and  a  statement  of  the  luunber  of  feet  lying  to 
the  right  and  to  the  left  of  the  line  from  post  numbered  one  to  post 
numbered  two,  thus:  "Initial  post.     Directionof  post  numbered  two. 

feet  of  this  claim  lie  on  the  right  and feet  on  the  left 

of  the  line  from  number  one  to  number  two  post."  All  the  particulars 
required  to  be  put  on  number  one  and  number  two  posts  shall  be  fur- 
nished ])y  the  locator  to  the  provincial  secretary,  or  such  other  officer 
as  by  the  Philippine  government  may  be  described  as  mining  recorder, 
in  writing,  at  the  time  the  claim  is  recorded,  and  shall  form  a  part  of 
the  record  of  such  claim. 

Sec.  2-i.  That  Avhen  a  claim  has  been  located  the  holder  shall  imme- 
diately mark  the  line  between  posts  numbered  one  and  two  so  that  it 
can  be  distinctly  seen.  The  locator  shall  also  place  a  post  at  the  point 
where  he  has  found  minerals  in  place,  on  which  shall  be  written  "  Dis- 
covery post:"  Provided.,  That  when  the  claim  is  surve3ed  the  sur- 
veyor shall  be  guided  b}"  the  records  of  the  claim,  the  sketch  plan  on 
the  back  of  the  declaration  made  by  the  owner  when  the  claim  was 
recorded,  posts  numbered  one  and  tAvo,  and  the  notice  on  number  one, 
the  initial  post. 

EXAMPLES   OF   VARIOUS   MODES   OF   LAYING   OUT   CLAIMS. 


No.  2  post. 

-o- 


No.  2  post. 


750' 


(jDiscovery  post. 


O- 


750' 


600' 


No.  2  post. 

— o—. 


Discovery  Q 
post. 


GOO' 


6- 


400' 


No.  1  post. 


No.  1  post. 


No.  1  post. 


Sec.  25.  That  it  sliall  not  be  lawful  to  move  numlxM-  one  post,  but 
number  two  post  inay  be  moved  by  the  deputy  ininei'al  surveyor  when 
the  distance  between  ])osts  numbered  one  and  two  exceeds  one  thou- 
sand feet,  in  order  to  place  number  two  post  one  thousand  feet  from 
23181—04 29 


440  REPORTS    OF   THE    CIVIL    GOVERNMENT 

number  one  post  on  the  line  of  location.  When  the  distance  between 
posts  nunibered  one  and  two  is  less  than  one  thousand  feet  the  deputy 
mineral  survoyor  shall  have  no  authority  to  extend  the  claim  beyond 
munbcr  two. 

Skc.  20.  That  the  "location  line"  shall  oovern  the  direction  of  one 
side  of  the  claim,  upon  which  the  survey  shall  be  extended  according 
to  this  Act. 

SvA\  27.  That  the  holder  of  a  mineral  claim  shall  be  entitled  to  all 
minerals  which  may  lie  within  his  claim,  ])ut  he  shall  not  be  entitled 
to  mine  outside  the  boundary  lines  of  his  claim  continued  vertically 
downward:  Provided.,  That  this  Act  shall  not  prejudice  the  rights  of 
claim  owners  nor  claim  holders  whose  claims  have  been  located  under 
existing  laws  prior  to  this  Act. 

Sec.  28.  That  no  mineral  claim  of  the  full  size  shall  be  recorded 
without  the  application  being  accompanied  by  an  affidavit  made  l)y 
the  applicant  or  some  person  on  his  behalf  cognizant  of  the  facts — 
that  the  legal  notices  and  posts  have  been  put  up;  that  mineral  has 
been  found  in  place  on  the  claim  proposed  to  bo  recorded;  that  the 
ground  applied  for  is  unoccupied  by  any  other  person.  In  the  said 
declaration  shall  be  set  out  the  name  of  the  applicant  and  the  date  of 
the  location  of  the  claim.  The  words  written  on  the  number  one  and 
number  two  posts  shall  be  set  out  in  full,  and  as  accurate  a  description 
as  possible  of  the  position  of  the  claim  given  with  reference  to  some 
natui'al  object  or  permanent  monuments. 

Sec.  29.  That  no  mineral  claim  which  at  the  date  of  its  record  is 
known  by  the  locator  to  be  less  than  a  full-sized  mineral  claim  shall  be 
recorded  without  the  word  "fraction"  being  added  to  the  name  of 
the  claim,  and  the  application  being  accompanied  by  an  affidavit  or 
solenm  declaration  made  by  the  applicant  or  some  person  on  his 
behalf  cognizant  of  the  facts:  That  the  legal  posts  and  notices  have 
been  put  up;  that  mineral  has  been  found  in  place  on  the  fractional 
claim  proposed  to  be  recorded;  that  the  ground  applied  for  is  unoccu- 
pied b}^  any  other  person.  In  the  said  declaration  shall  be  set  out  the 
name  of  the  applicant  and  the  date  of  the  location  of  the  claim.  The 
words  written  on  the  posts  numbered  one  and  two  shall  be  set  out 
in  full,  and  as  accurate  a  description  as  possi])le  of  the  position  of  the 
claim  given.  A  sketch  plan  shall  he  drawn  by  the  applicant  on  the  back 
of  the  declaration,  showing  as  near  as  ma}'  be  the  position  of  the 
adjoining  mineral  claims  and  the  shape  and  size,  expressed  in  feet,  of 
the  claim  or  fraction  desired  to  be  i-ecorded:  Provided^  That  the 
failure  on  the  part  of  the  locator  of  a  mineral  claim  to  comply  with 
any  of  the  foregoing  provisions  of  this  section  shall  not  be  deemed  to 
invalidate  such  location,  if  upon  the  facts  it  shall  appear  that  such 
locator  has  actually  discovered  mineral  in  place  on  said  location,  and 
that  there  has  been  on  his  part  a  bona  fide  attempt  to  comply  with  the 
provisions  of  this  Act,  and  that  the  nonobservance  of  the  formalities 
hereinbefore  referred  to  is  not  of  a  character  calculated  to  mislead 
other  persons  desiring  to  locate  claims  in  the  vicinity. 

Sec.  30.  That  in  cases  where,  from  the  nature  or  shape  of  the  ground, 
it  is  impossible  to  mark  the  location  line  of  the  claim  as  provided  by 
this  Act  then  the  claim  may  be  marked  ])y  placing  posts  as  nearly  as 
possi})le  to  the  location  lino,  and  noting  the  distance  and  direction  such 
posts  may  be  from  such  location  line,  which  distance  and  direction 
shall  be  set  out  in  the  record  of  the  claim. 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  447 

Sec.  31.  That  every  person  locating  a  mineral  claim  shall  record  the 
same  with  the  provincial  secretarv  or  such  other  officer  as  b}^  the  gov- 
ernment of  the  Philippine  Islands  ma^^  be  described  as  mining  recorder 
of  the  district  v.ithin  which  the  same  is  situate,  within  thirty  days 
after  the  location  thereof.  Such  record  shall  be  made  in  a  book  to  be 
kept  for  the  purpose  in  the  office  of  the  said  provincial  secretary 
or  such  other  officer  as  b}"  said  government  described  as  mining 
recorder,  in  which  shall  be  inserted  the  name  of  the  claim,  the  name  of 
each  locator,  the  localit}^  of  the  mine,  the  direction  of  the  location  line, 
the  length  in  feet,  the  date  of  location,  and  the  date  of  the  record. 
A  claim  which  shall  not  have  been  recorded  within  the  prescribed 
period  shall  be  deemed  to  have  been  abandoned. 

Sec.  32.  That  in  case  of  an}^  dispute  as  to  the  location  of  a  mineral 
claim  the  title  to  the  claim  shall  be  recognized  according  to  the  priority' 
of  such  location,  subject  to  any  question  as  to  the  validity  of  the 
record  itself  and  subject  to  the  holder  having  complied  with  all  the 
terms  and  conditions  of  this  Act. 

Sec.  33.  That  no  holder  shall  be  entitled  to  hold  in  his,  its,  or  their 
own  name  or  in  the  name  of  any  other  person,  corporation,  or  associa- 
tion more  than  one  mineral  claim  on  the  same  vein  or  lode. 

Sec.  34.  That  a  holder  ma)-  at  an}^  time  abandon  any  mineral  claim 
by  giving  notice,  in  writing,  of  such  intention  to  abandon,  to  the 
provincial  secretarv  or  such  other  officer  as  by  the  government  of  the 
Philippine  Islands  ma}^  be  described  as  mining  recorder;  and  from 
the  date  of  the  record  of  such  notice  all  his  interest  in  such  claim  shall 
cease. 

Sec.  3.5.  That  proof  of  citizenship  under  the  clauses  of  this  Act  relat- 
ing to  mineral  lands  may  consist,  in  the  case  of  an  individual,  of  his 
own  affidavit  thereof;  in  the  case  of  an  association  of  persons  unincor- 
porated, of  the  affidavit  of  their  authorized  agent,  made  on  his  own 
knowledge  or  upon  information  and  belief;  and  in  the  case  of  a  cor- 
poration organized  under  the  laws  of  the  United  States,  or  of  any 
State  or  Territory  thereof,  or  of  the  Philippine  Islands,  by  the  filing 
of  a  certified  cop}^  of  their  charter  or  certificate  of  incorporation. 

Sec.  36.  That  the  United  States  Philippine  Commission  or  its  suc- 
cessors may  make  regulations,  not  in  conflict  with  the  provisions  of 
this  Act,  governing  the  location,  manner  of  recording,  and  amount  of 
work  necessary  to  hold  possession  of  a  mining  claim,  subject  to  the 
following  requirements: 

On  each  claim  located  after  the  passage  of  this  Act,  and  until  a 
patent  has  been  issued  therefor,  not  less  than  one  hundred  dollars' 
worth  of  labor  shall  be  performed  or  improvements  made  during  each 
year:  Provided^  That  upon  a  failure  to  comply  with  these  conditions 
the  claim  or  mine  upon  which  such  failure  occurred  shall  be  open  to 
relocation  in  the  same  manner  as  if  no  location  of  the  same  had  ever 
been  made,  provided  that  the  original  locators,  their  heirs,  assigns,  or 
legal  representatives  have  not  resumed  woi-k  upon  the  claim  after  fail- 
ure and  before  such  location.  Upon  the  failure  of  any  one  of  several 
coowners  to  contribute  his  proportion  of  the  expenditures  recjuii'ed 
thereby,  the  coowners  who  have  performed  the  labor  or  made  the 
improvements  may,  at  the  expiration  of  the  year,  give  such  delin((uent 
coowncr  personal  notice  in  writing,  or  notice  by  publication  in  the 
newspaper  pu})lished  nearest  the  claim,  and  in  two  newspapers  pub- 
lished at  Manila,  one  in  the  English  language  and  the  other  in  the 


448      -  REPORTS    OF   THE    CIVIL    GOVERNMENT 

Spanish  lanouaoo,  to  bo  dosi.onatcd  by  the  chief  of  the  rhilippiiic 
insular  ])uih'>:ui  'of  public  lands,  for  at  least  once  a  week  _for_  ninety 
days,  and  if,  at  the  expiration  of  ninety  days  after  such  notice  in  writ- 
ing- or  bv  i)u))licati()n  such  delin([uent  shall  fail  or  refuse  to  contribute 
Ills  proportion  of  the  expenditure  recjuired  by  this  section  his  Interest 
in  the  claim  shall  l)econie  the  property  of  his  coowners  who  have  made 
the  required  expenditures.     The  period  within  which  the  work  roquii-ed 
to  bo  done  annually  on  all  unpat(>ntod  mineral  claims  shall  conunence 
on  the  tirst  day  of  January  succoedino-  the  date  of  location  of  such  claim. 
Sec.  37.  That  a  patent  for  any  land  claimed  and  located  for  valua- 
l)le  mineral  deposits  may  be  obtained  in  the  foliowino-  manner:  Any 
person,  association,  or  corporation  authorized  to  locate  a  claim  under 
this  Act,  haying-  claimed  and  located  a  piece  of  land  for  such  purposes, 
who  has  or  hiivQ,  complied  with  the  terms  of  this  Act,  may  tile  in  the 
office  of  the  pro\incial  secretary,  or  such  other  officer  as  by  the  gov- 
ernmont  of  said  Islands  may  be  described  as  mining-  recorder  of  the 
proyince  wherein  the  land   claimed  Is  located,  an  application  for  a 
patent,  under  oath,  showing  such  compliance,  together  with  a  Y)lat  and 
lield  notes  of  the  claim  or  claims  in  common,  made  by  or  under  the 
direction  of  the  chief  of  the  Philippine  insular  bureau  of  public  lands, 
shoAying  accurately   the    boundaries   of    the    claim,  which   shall   be 
distinctly  marked  by  monuments  on  the  ground,  and  shall  post  a  copy 
of  such^plat,  together  with  a  notice  of  such  application  for  a  patent, 
in  a  conspicuous  place  on  the  land  embraced  in  such  plat  previous  to 
the  tiling  of  the  application  for  a  patent,  and  shall  file  an  affidavit  of 
at  least  two  persons  that  such  notice  has  been  duly  posted,  and  shall 
tile  a  copy  of  the  notice  In  such  office,  and  shall  thereupon  be  entitled 
to  a  patent  for  the  land,  in  the  manner  following:  The  provincial  sec- 
retary, or  such  other  officer  as  by  the  Philippine  government  may  be 
described  as  mining  recorder,  upon  the  tiling  of  such  application,  plat, 
field  notes,  notices,  and  affidavits,  shall  publish  a  notice  that  such  an 
application  has  been  made,  once  a  week  for  the  period  of  sixty  days, 
in  a  newspaper  to  be  by  him  designated  as  nearest  to  such  claim  and 
in  two  newspapers  published  at  Manila,  one  in  the  English  language 
and  one  in  the  Spanish  language,  to  be  designated  by  the  chief  of  the 
Philippine  insular  bureau  of  public  lands;  and  he  shall  also  post  such 
notice  in  his  office  for  the  same  period.     The  claimant  at  the  time  of 
filing  his  application,  or  at  any  time  thereafter  within  the  sixty  days  of 
publication,  shall  file  with  the  proyinclal  secretary  or  such  other  officer 
as  by  the  Philippine  government  may  be  described  as  mining  recorder 
a  certificate  of  the  chief  of  the  Philippine  Insular  bureau  of  public 
lands  that  five  hundred  dollars'  worth  of  labor  has  been  expended  or 
improvements  made  upon  the  claim  by  himself  or  grantors;  that  the 
plat  Is  correct,  with  such  further  description  by  such  reference  to 
natural  objects  or  permanent  monuments  as  shall  identify  the  claim, 
and  furnish  an  accurate  description  to  be  incorporated  in  the  patent. 
At  the  expiration  of  the  sixty  days  of  publication  the  claimant  shall 
file  his  affidavit,  showing  that  the  plat  and  notice  have  been  posted  in  a 
conspicuous  place  on  the  claim  during  such  period  of  publication.     If 
no  adverse  claim  shall  have  been  filed  w  Ith  the  provincial  secretary  or 
such   other   officer  as   by   the   government   of   said   Islands   may   be 
described  as  raining  recorder  at  the  expiration  of  the  sixty  days  of 
publication.  It  shalf  be  assumed  that  the  applicant  Is  entitled  to  a 
patent  upon  the  payment  to  the  provincial  treasurer  or  the  collector  of 


OF   THE    PHILIPPINE   ISLANDS,   1900-1903.  449 

internal  revenue  of  five  dollars  per  acre  and  that  no  adverse  claim  exists, 
and  thereafter  no  objection  from  third  parties  to  the  issuance  of  a  patent 
shall  be  heard,  except  it  be  shown  that  the  applicant  has  failed  to 
comph'  with  the  terms  of  this  Act:  Fravided^  That  where  the  claimant 
for  a  patent  is  not  a  resident  of  or  within  the  province  wherein  the 
land  containing  the  vein,  ledge,  or  deposit  sought  to  be  patented  is 
located,  the  application  for  patent  and  the  affidavits  required  to  be 
made  in  this  section  by  the  claimant  for  such  patent  ma}^  be  made  by 
his,  her,  or  its  authorized  ^agent  where  said  agent  is  conversant  with 
the  facts  sought  to  be  established  by  said  affidavits. 

Sec.  38.  That  applicants  for  mineral  patents,  if  residing  beyond  the 
limits  of  the  province  or  militarv  department  wherein  the  claim  is  sit- 
uated, may  make  the  oath  or  affidavit  required  for  proof  of  citizenship 
before  the  clerk  of  any  court  of  record,  or  before  any  notary  public 
of  any  province  of  the  Philippine  Islands,  or  any  other  official  in  said 
islands  authorized  by  law  to  administer  oaths. 

Sec.  39.  That  where  an  adverse  claim  is  filed  during  the  period  of 
publication  it  shall  be  upon  oath  of  the  person  or  persons  making  the 
same,  and  shall  show  the  nature,  boundaries,  and  extent  of  such  adverse 
claim,  and  all  proceedings,  except  the  publication  of  notice  and  mak- 
ing and  filing  of  the  affidavits  thereof,  shall  be  stayed  until  the  con- 
troversy shall  have  been  settled  or  decided  by  a  court  of  competent 
jurisdiction  or  the  adverse  claim  waived.  It  shall  be  the  duty  of  the 
adverse  claimant,  within  thirty  days  after  filing  his  claim,  to  commence 
proceedings  in  a  court  of  competent  jurisdictiontodetermine  the  ques- 
tion of  the  right  of  possession,  and  prosecute  the  same  with  reasonable 
diligence  to  final  judgment,  and  a  failure  so  to  do  shall  be  a  waiver  of  his 
adverse  claim.  After  such  judgment  shall  have  been  rendered  the 
party  entitled  to  the  possession  of  the  claim,  or  any  portion  thereof, 
may,  without  giving  further  notice,  file  a  certified  copy  of  the  judg- 
ment roll  with  the  provincial  secretary  or  such  other  officer  as  by  the 
government  of  the  Philippine  Islands  may  be  described  as  mining 
recorder,  together  with  the  certificate  of  the  chief  of  the  Philippine 
insular  bureau  of  public  lands  that  the  requisite  amount  of  lal)or  has 
been  expended  or  improvements  made  thereon,  and  the  description 
required  in  other  cases,  and  shall  pay  to  the  provincial  treasurer  or 
the  collector  of  internal  revenue  of  the  province  in  which  the  clami  is 
situated,  as  the  case  may  be,  five  dollars  per  acre  for  his  claim, 
together  with  the  proper  fees,  whereupon  the  whole  proceedings  and 
the  judgment  roll  shall  be  certified  by  the  provincial  secretary  or  such 
other  officer  as  by  said  government  may  be  described  as  mining  recorder 
to  the  secretary  of  the  interior  of  the  Philippine  Islands,  and  a  patent 
shall  issue  thereon  for  the  claim,  or  such  portion  thereof  as  the  appli- 
cant shall  appear,  from  the  decision  of  the  court,  rightly  to  possess. 
The  adverse  claim  may  be  verified  by  the  oath  of  any  duly  autiiorized 
agent  or  attornev  in  fact  of  the  adverse  claimant  cognizant  of  the  facts 
stated;  and  the  adverse  claimant,  if  residing  or  at  the  time  being  beyond 
the  limits  of  the  province  wherein  the  claim  is  situated,  may  make  oath  to 
the  adverse  claim  before  the  clerk  of  any  court  of  record,  or  any 
notary  public  of  any  province  or  military  department  of  the  Philip- 
pine islands,  or  anv  other  ofliccr  authorized  to  administer  oaths  where 
the  adverse  claimant  mav  then  be.  If  it  appears  from  the  decision  of 
the  court  that  several  parties  are  entitled  to  separate  and  difierent 
portions  of  the  claim,  each  party  may  pay  for  his  portion  of  the  claim, 


450  REPORTS    OF   THE    CIVIL    GOVERNMENT 

with  the  proper  fees,  and  lilc  the  certitieate  and  de.seription  by  the 
chief  of  the  Philippine  insidar  bureau  of  public  lands,  Avhereupon  the 
provincial  secretary  or  such  other  otticer  as  by  the  o()vernnient  of 
said  islands  niav  be  described  as  mining  recorder  shall  certify  the  pro- 
ceedinos  and  fudo-ment  roll  to  the  secretary  of  the  intei'ior  for  the 
Philippine  Islands,  as  in  the  preceding-  case,  and  patents  shall  issue  to 
the  several  parties  according  to  their  respective  rights.  If  in  any 
action  brought  pursuant  to  tbis  section  title  to  the  ground  in  contro- 
versy shall  not  be  established  by  either  party,  the  court  shall  so  iind, 
and  "judgment  shall  be  entered  accordingly.  In  such  case  costs  shall 
not  i)e  i'dlowed  to  either  party,  and  the  claimant  shall  not  proceed  in 
the  office  of  the  provincial  secretary  or  such  other  otiicer  as  by  the 
government  of  said  islands  may  be  described  as  mining  recorder  or  be 
entitled  to  a  patent  for  the  ground  in  controversy  until  he  shall  have 
perfected  his  title.  Nothing  herein  contained  shall  be  construed  to 
prevent  the  alienation  of  a  title  conveyed  by  a  patent  for  a  mining- 
claim  to  anv  person  whatever. 

Sec.  40.  "That  the  description  of  mineral  claims  upon  surveyed  lands 
shall  designate  the  location  of  the  claim  with  reference  to  the  lines  of 
the  pu])lic  surveys,  but  need  not  conform  therewith;  but  where  a 
patent  shall  be  issued  for  claims  upon  unsurveyed  lands  the  chief  of  the 
Philippine  insular  bureau  of  public  lands  in  extending  the  surveys 
shall  adjust  the  same  to  the  boundaries  of  such  patented  claim  accord- 
ing to  the  plat  or  description  thereof,  but  so  as  in  no  case  to  interfere 
with  or  change  the  location  of  any  such  patented  claim. 

Sec.  41.  That  any  person  authorized  to  enter  lands  under  this  Act 
may  enter  and  obtain  patent  to  lands  that  are  chiefly  valuable  for 
building  stone  under  the  provisions  of  this  Act  relative  to  placer 
mineral  claims.  i  •     »    i. 

Sec.  42.  That  any  person  authorized  to  enter  lands  under  this  Act 
may  enter  and  obtain  patent  to  lands  containing  petroleum  or  other 
mineral  oils  and  chiefly  valuable  therefor  under  the  provisions  of  this 
Act  relative  to  placer  mineral  claims. 

Sec.  43.  That  no  location  of  a  i^lacer  claim  shall  exceed  sixty-four 
hectares  for  any  association  of  persons,  irrespective  of  the  number  of 
persons  composing  such  association,  and  no  such  location  shall  include 
more  than  eight  hectares  for  an  individual  claimant.  Such  locations 
shall  conform  to  the  laws  of  the  United  States  Philippine  Commission, 
or  its  successors,  with  reference  to  public  surveys,  and  nothing  in  this 
section  contained  shall  defeat  or  impair  any  bona  tide  ownership  of 
land  for  agricultural  purposes  or  authorize  the  sale  of  the  improve- 
ments of  any  bona  fide  settler  to  any  purchaser. 

Sec.  44.  That  where  placer  claims  are  located  upon  surveyed  lands 
and  conform  to  legal  subdivisions,  no  further  survey  or  plat  shall  be 
required,  and  all  placer  mining  claims  located  after  the  date  of  passage 
of  this  Act  shall  conform  as  nearly  as  practicable  to  the  Philippine 
system  of  public-land  surveys  and  the  regular  subdivisions  of  such 
surveys;  but  wdiere  placer  claims  can  not  be  conformed  to  legal  sub- 
divisions, survey  and  plat  shall  be  made  as  on  unsurveyed  lands;  and 
w^here  by  the  segregation  of  mineral  lands  in  any  legal  subdivision  a 
quantity  of  agricultural  land  less  than  sixteen  hectares  shall  remain, 
such  fractional  portion  of  agricultural  land  may  be  entered  by  any 
party  qualilied  by  law  for  homestead  purposes. 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  451 

Sec.  45.  That  where  such  person  or  association,  they  and.  their 
grantors  have  held  and  worked  their  claims  for  a  period  equal  to  the 
time  prescribed  by  the  statute  of  limitations  of  the  Philippine  Islands, 
evidence  of  such  possession  and  working*  of  the  claims  for  such  period 
shall  be  sufficient  to  establish  a  right  to  a  patent  thereto  under  this 
Act,  in  the  absence  of  any  adverse  claim;  but  nothing  in  this  Act  shall 
be  deemed  to  impair  an}^  lien  which  may  have  attached  in  any  way 
whatever  prior  to  the  issuance  of  a  patent. 

Sec.  46.  That  the  chief  ,of  the  Philippine  insular  bureau  of  public 
lands  may  appoint  competent  deputy  mineral  surve3"ors  to  survey 
mining  claims.  The  expenses  of  the  surve}"  of  vein  or  lode  claims  and 
of  the  survey  of  placer  claims,  together  with  the  cost  of  publication 
of  notices,  shall  be  paid  by  the  applicants,  and  they  shall  be  at  libert}' 
to  obtain  the  same  at  the  most  reasonable  rates,  and  the^^  shall  also  be 
at  libertj^  to  employ  any  such  deputy  mineral  surveyor  to  make  the 
survey.  The  chief  of  the  Philippine  insular  bureau  of  public  lands 
shall  also  have  power  to  establish  the  maximum  charges  for  surveys  and 
publication  of  notices  under  this  Act;  and  in  case  of  excessive  charges 
for  publication  he  may  designate  any  newspaper  published  in  a  province 
where  mines  are  situated,  or  in  Manila,  for  the  publication  of  mining 
notices  and  fix  the  rates  to  be  charged  by  such  paper;  and  to  the  end 
that  the  chief  of  the  bureau  of  public  lands  may  be  fully  informed  on 
the  subject  such  applicant  shall  tile  with  the  provincial  secretary,  or 
such  other  officer  as  by  the  government  of  the  Philippine  Islands  may 
be  described  as  mining  recorder,  a  sworn  statement  of  all  charges  and 
fees  paid  by  such  applicant  for  publication  and  surveys,  and  of  all 
fees  and  money  paid  the  provincial  treasurer  or  the  collector  of  inter- 
nal revenue,  as  the  case  may  be,  which  statement  shall  be  transmitted, 
with  the  other  papers  in  the  case,  to  the  secretary  of  the  interior  for 
the  Philippine  Islands. 

Sec.  47.  That  all  affidavits  required  to  be  made  under  this  Act  may 
be  verified  before  any  officer  authorized  to  administer  oaths  within  the 
province  or  militar}^'  department  where  the  claims  may  be  situated, 
and  all  testimonv  and  proofs  may  bo  taken  before  any  such  officer,  and, 
when  duly  certified  by  the  officer  taking  the  same,  shall  have  the  same 
force  and  effect  as  if  "taken  before  the  proper  provincial  secretary  or 
such  other  officer  as  by  the  government  of  the  Philippine  Islands  may 
be  described  as  mining  recorder.  In  cases  of  contest  as  to  the  mineral 
or  agricultural  character  of  land  the  testimony  and  proofs  may  be 
taken  as  herein  provided  on  personal  notice  of  at  least  ten  days  to  the 
opposing  party;  or  if  such  party  can  not  be  found,  then  by  publica- 
tion at  least  once  a  week  for  th"irty  days  in  a  newspaper  to  bo  desig- 
nated by  the  provincial  secretary  or  such  other  officer  as  by  said 
government  may  be  described  as  mining  recorder  published  nearest  to 
the  location  of  such  land  and  in  two  newspapers  published  in  Manila,  one 
in  the  English  language  and  one  in  the  Spanish  language,  to  be  desig- 
nated by  the  chief  of  the  Philippine  insular  bureau  of  public  lands; 
and  the  provincial  secretary  or  such  other  officer  as  bv  said  govern- 
ment may  be  described  as  mining  recorder  shall  recjuire  proofs  that 
such  notice  has  been  given. 

Se(^  48.  That  where  nonmineral  land  not  contiguous  to  the  vein  or 
lode  is  used  or  occupied  by  the  proprietor  of  such  vein  or  lode  for  min- 
ing or  milling  i)urposes,  such  nonadjacent  surface  ground  may  be 
embraced  and'  included  in  an  application  for  a  patent  for  such  vein  or 


45'2  REPORTS    OK    THE    CIVIL    GOVERNMENT 

lodo,  iiiul  the  .same  may  be  patented  therewith,  subject  to  the  same  pre- 
liminary re(iuirements  as  to  survey  and  notice  as  are  applicable  to 
veins  or  lodes;  l)ut  no  location  of  such  nonadjacent  land  shall  exceed 
two  hectares,  and  payment  for  the  same  must  he  made  at  the  same  rate 
as  tixed  by  this  Act  "for  the  supcrtices  of  the  lode.  The  owner  of  a 
quartz  mill  or  reduction  works  not  owning- a  mine  in  connection  there- 
with may  also  receive  a  patent  for  his  mill  site  as  provided  in  this 

section.  ,         i^,  .,• 

Sec.  40.  That  as  a  condition  of  sale  the  (government  ot  the  Philip- 
pine Islands  may  provide  rules  for  working-,  policing,  and  sanitation 
of  mines,  and  rules  concerning  easements,  drainage,  water  rights, 
right  of  way,  right  of  Government  survey  and  inspection,  and  other 
necessary  means  to  their  complete  development  not  inconsistent  with 
the  provisions  of  this  Act,  and  those  conditions  shall  be  fully  expressed 
in  the  patent.  The  Philippine  Commission  or  its  successors  are  hereby 
further  empowered  to  fix  the  bonds  of  deputy  mineral  surveyors. 

Sec.  50.  That  whenever  by  priority  of  possession  rights  to  the  use 
of  water  for  mining,  agricultural,  manufacturing,  or  other  purposes 
have  vested  and  accrued  and  the  same  are  recognized  and  acknowledged 
by  the  local  customs,  law^s,  and  the  decisions  of  courts,  the  possessors 
and  owners  of  such  vested  rights  shall  be  maintained  and  protected  in 
the  same,  and  the  right  of  way  for  the  construction  of  ditches  and 
canals  for  the  purposes  herein  specified  is  acknowledged  and  confirmed, 
but  whenever  any  person,  in  the  construction  of  any  ditch  or  canal, 
injures  or  damages  the  possession  of  any  settler  on  the  public  domain, 
the  party  committing  such  injury  or  damage  shall  be  liable  to  the 
party  injured  for  such  injury  or  damage. 

Sec.  51.  That  all  patents  granted  shall  be  subject  .to  any  vested  and 
accrued  water  rights,  or  rights  to  ditches  and  reservoirs  used  in  con- 
nection with  such  water  rights  as  may  have  been  acquired  under  or 
recoo^nized  by  the  preceding  section. 

Sec,  52.  That  the  government  of  the  Philippine  Islands  is  author- 
ized to  establish  land  districts  and  provide  for  the  appointment  of  the 
necessary  ofiicers  wherever  they  may  deem  the  same  necessary  for  the 
public  convenience,  and  to  further  provide  that  in  districts  where  land 
oflices  are  established  proceedings  required  by  this  Act  to  be  had 
before  provincial  officers  shall  be  had  before  the  proper  ofiicers  of  such 
land  offices. 

Sec.  53.  That  every  person  above  the  age  of  twenty-one  years,  who 
is  a  citizen  of  the  United  States,  or  of  the  Philippine  Islands,  or  who 
has  acquired  the  rights  of  a  native  of  said  islands  under  and  by  virtue 
of  the  treaty  of  Paris,  or  any  association  of  persons  severally  qualified 
as  above,  shall,  upon  application  to  the  proper  provincial  treasurer, 
have  the  right  to  enter  any  quality  of  vacant  coal  lands  of  said  Islands 
not  otherwise  appropriated  or  reserved  by  competent  authority,  not 
exceeding  sixty-four  hectares  to  such  individual  person,  or  one  hun- 
dred and  twenty-eight  hectares  to  such  association,  upon  payment  to 
the  provincial  treasurer  or  the  collector  of  internal  revenue,  as  the 
case  mav  be,  of  not  less  than  twenty-five  dollars  per  hectare  for  such 
lands,  where  the  same  shall  be  situated  more  than  fifteen  miles  from 
any  completed  railroad  or  available  harbor  or  navigable  stream,  and 
not  less  than  fifty  dollars  per  hectare  for  such  lands  as  shall  be  within 
fifteen  miles  of  such  road,  har})or,  or  stream:  Provided^  That  such 
entries  shall  be  taken  in  squares  of  sixteen  or  sixty-four  hectares,  in 


OF   THE    PHILIPPINE    ISLANDS,   1900-1903.  453 

conformity  with  the  rules  and  regulations  governing  the  public-land 
survej^s  of  the  said  Islands  in  plotting  legal  subdivisions. 

Sec.  54.  That  any  person  or  association  of  persons,  seyerally  quali- 
fied as  aboye  proyided,  who  ha^-e  opened  and  improyed,  or  shall  here- 
after open  and  improye,  any  coal  mine  or  mines  upon  the  public  lands, 
and  shall  be  in  actual  possession  of  the  same,  shall  be  entitled  to  a 
preference  right  of  entry  under  the  preceding  section  of  the  mines  so 
opened  and  improyed. 

Sec.  55.  That  all  claims  .under  the  preceding  section  must  l)e  pre- 
sented to  the  proper  proyineial  secretary  within  sixt}'  da5^s  after  the 
date  of  actual  possession  and  the  commencement  of  improyements  on 
the  land  by  the  filing  of  a  declaratory  statement  therefor;  and  wdiere 
the  improyements  shall  haye  been  made  prioi-  to  the  expiration  of 
three  months  from  the  date  of  the  passage  of  this  Act,  sixty  days  from 
the  expiration  of  such  three  months  shall  be  allowed  for  the  filing  of  a 
declaratory  statement;  and  no  sale  under  the  provisions  of  this  Act 
shall  be  allowed  until  the  expiration  of  six  months  from  the  date  of 
the  passage  of  this  Act. 

Sec.  50.  That  the  tliree  preceding  sections  shall  be  held  to  authorize 
onl}^  one  entry  by  the  same  person  or  association  of  persons;  and  no 
association  of  persons,  an}"  member  of  which  shall  have  taken  the  bene- 
fit of  such  sections,  either  as  an  indiyidualor  as  a  member  of  any  other 
association,  shall  enter  or  hold  any  other  lands  under  the  provisions 
thereof;  and  no  member  of  any  association  which  shall  have  taken  the 
benefit  of  such  section  shall  enter  or  hold  any  other  lauds  under  their 
provisions;  and  all  persons  claiming  under  section  fifty-eight  shall  be 
required  to  prove  their  respective  rights  and  pay  for  the  lands  filed 
upon  within  one  year  from  the  time  prescribed  for  filing  their  respec- 
tive claims;  and  upon  faihu'e  to  file  the  proper  notice  or  to  pa}^  for  the 
land  within  the  required  period,  the  same  shall  be  subject  to  entry  by 
any  other  qualified  applicant. 

Sec.  57.  That  in  chho  of  conflicting  claims  upon  coal  lands  where 
the  improyements  sliall  l)e  commenced  after  the  date  of  the  passage  of 
this  Act,  priorit}'  of  possession  and  improvement,  followed  by  proper 
filing  and  continued  good  faith,  shall  determine  the  preference  right 
to  purcliase.  And  also  where  inq)rovements  have  already  ])een  made 
prior  to  the  passage  of  this  Act,  di\ision  of  the  land  claimed  may  be 
made  by  legal  sulxlivisions,  which  shall  conform  as  nearly  as  practi- 
cable with  the  subdivisions  of  land  provided  for  in  this  Act,  to  include 
as  near  as  may  be  the  valuable  improvements  of  the  respective  parties.' 
The  Government  of  the  Philii)])ine  Islands  is  authorized  to  issue  all 
needful  rules  and  regulations  for  carrying  into  ett'ect  the  provisions 
of  this  and  preceding  sections  relating  to  mineral  lands. 

Sec.  58.  That  whenever  it  shall  be  made  to  appear  to  the  secretary 
of  any  province  or  th<>  commandei'  of  any  military  department  in  the 
Philippine  Islands  that  any  lands  within  the  j)i-ovince  are  saline  in 
character,  it  shall  be  the  duty  of  said  provincial  secretary  or  com- 
mander, under  the  regulations  of  the  Government  of  the  Philippine 
Islands,  to  take  testimony  in  reference  to  such  lands,  to  ascertain  their 
true  character,  and  to  report  the  same  to  the  secrettiry  of  the  interior 
for  the  Phili])pine  Islands;  and  if,  upon  such  testimony,  the  secretary 
of  the  interioi-  shall  find  that  such  lands  are  saline  and  inca]ia1)le  of 
being  purchased  under  any  of  the  laws  relative  to  the  pul)lic  domain, 
then  and  in  such  case  said  lands  shall  be  ofi:'ered  for  sale  at  the  ofiice 


454  REPOKTS    OF   THE    CIVIL    GOVERNMENT 

of  the  provincial  secretaiy  or  such  other  officer  as  by  the  said  govern- 
iiiont  may  bo  dcscril^ed  as  mining-  recorder  of  the  province  or  depart- 
ment in  which  the  same  shall  l)c  situated,  as  the  case  may  be,  under 
such  reoulations  as  maybe  prescri])ed  ])y  said  Government  and  sold  to 
the  hiiihest  bidder,  for  cash,  at  a  price  of  not  less  than  three  dollars 
per  hectare;  and  in  case  such  lands  fail  to  sell  when  so  offered,  then 
the  same  shall  be  subject  to  private  sale  at  such  office,  for  cash,  at  a 
price  not  less  than  three  dollars  per  hectare,  in  the  same  manner  as 
other  lands  in  the  said  Islands  are  sold.  All  executive  proclamations 
relating  to  the  sales  of  public  saline  lands  shall  be  published  in  only  two 
newspapers,  one  printed  in  the  English  language  and  one  in  the  Span- 
ish language,  at  Manila,  which  shall  be  designated  by  said  secretary  of 
the  interior. 

Sec.  59.  That  no  Act  granting  lands  to  provinces,  districts,  or 
municipalities  to  aid  in  the  construction  of  roads,  or  for  other  public 
purposes,  shall  be  so  construed  as  to  embrace  mineral  lands,  which,  in 
all  cases,  are  reserved  exclusively,  unless  otherwise  specially  provided 
in  the  Act  or  Acts  making  the  grant. 

Sec.  60.  That  nothing  in  this  Act  shall  be  construed  to  affect  the 
rights  of  any  person,  partnership,  or  corporation  having  a  valid,  per- 
fected mining  concession  granted  prior  to  April  eleventh,  eighteen 
hundred  and  ninet3^-nine,  but  all  such  concessions  shall  be  conducted 
under  the  provisions  of  the  law  in  force  at  the  time  they  were  granted, 
subject  at  all  times  to  cancellation  by  reason  of  illegality  in  the  pro- 
cedure by  which  they  were  obtained,  or  for  failure  to  comply  with  the 
conditions  prescribed  as  requisite  to  their  retention  in  the  laws  under 
which  they  were  granted:  Provided.,  That  the  owner  or  owners  of 
every  such  concession  shall  cause  the  corners  made  by  its  boundaries 
to  be  distinctly  marked  wnth  permanent  monuments  within  six  months 
after  this  Act  has  been  promulgated  in  the  Philippine  Islands,  and 
that  any  concessions  the  boundaries  of  which  are  not  so  marked  within 
this  period  shall  be  free  and  open  to  explorations  and  purchase  under 
the  provisions  of  this  Act. 

Sec.  61.  That  mining  rights  on  public  lands  in  the  Philippine  Islands 
shall,  after  the  passage  of  this  Act,  be  acquired  only  in  accordance 
with  its  provisions. 

Sec.  62.  That  all  proceedings  for  the  cancellation  of  perfected 
Spanish  concessions  shall  be  conducted  in  the  courts  of  the  Philippine 
Islands  having  jurisdiction  of  the  subject-matter  and  of  the  parties, 
unless  the  United  States  Philippine  Commission,  or  its  successors, 
shall  create  special  tribunals  for  the  determination  of  such  controversies. 

AUTHORITY  FOR  THE  PHILIPPINE  ISLANDS  GOVERNMENT  TO  PURCHASE 
L4NDS  OF  RELIGIOUS  ORDERS  AND  OTHERS  AND  ISSUE  BONDS  FOR 
PURCHASE   PRICE. 

Sec.  63.  That  the  government  of  the  Philippine  Islands  is  hereby 
authorized,  subject  to  the  limitations  and  conditions  prescril^ed  in  this 
Act,  to  acquire,  receive,  hold,  maintain,  and  convey  title  to  real  and 
personal  propert}^  and  may  acquire  real  estate  for  public  uses  by  the 
exercise  of  the  right  of  eminent  domain. 

Sec.  64.  That  the  powers  hereinbefore  conferred  in  section  sixty- 
three  may  also  be  exercised  in  respect  of  any  lands,  easements,  appurte- 
nances, and  hereditaments  which,  on  the  thirteenth  of  August,  eighteen 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  455 

hundred  and  ninety-eight,  were  owned  or  held  b}'  associations,  cor- 
jjorations,  communities,  religious  orders,  or  private  individuals  in 
such  large  tracts  or  parcels  and  in  such  manner  as  in  the  opinion  of 
the  Commission  injuriously  to  affect  the  peace  and  welfare  of  the 
people  of  the  Philippine  Islands.  And  for  the  purpose  of  providing 
funds  to  acquire  the  lands  mentioned  in  this  section  said  government 
of  the  Philippine  Islands  is  hereb}^  empowered  to  incur  indebtedness, 
to  borrow  money,  and  to  issue,  and  to  sell  at  not  less  than  par  value, 
in  gold  coin  of  the  United  States  of  the  present  standard  value 
or  the  equivalent  in  value  in  mone}^  of  said  Islands,  upon  such  terms 
and  conditions  as  it  may  deem  best,  registered  or  coupon  bonds 
of  said  government  for  such  amount  as  may  be  necessar}^  said 
bonds  to  be  in  denominations  of  fifty  dollars  or  any  multiple  thereof, 
bearing  interest  at  a  rate  not  exceeding  four  and  a  half  per  centum  per 
annum,  payable  quarterly,  and  to  be  payable  at  the  pleasure  of  said 
government  after  dates  named  in  said  bonds  not  less  than  five  nor  more 
than  thirt}^  jea,vs  from  the  date  of  their  issue,  together  with  interest 
thereon,  in  gold  coin  of  the  United  States  of  the  present  standard 
value  or  the  equivalent  in  value  in  money  of  said  Islands;  and  said 
bonds  shall  be  exempt  from  the  payment  of  all  taxes  or  duties  of  said 
government,  or  an}'^  local  authority  therein,  or  of  the  Government  of 
the  United  States,  as  well  as  from  taxation  in  any  form  by  or  under 
State,  municipal,  or  local  authority  in  the  United  States  or  the  Phil- 
ippine Islands.  The  moneys  which  may  be  realized  or  received  from 
the  issue  and  sale  of  said  bonds  shall  be  applied  by  the  government  of 
the  Philippine  Islands  to  the  acquisition  of  the  property  authorized 
by  this  section,  and  to  no  other  purposes. 

Sec.  65.  That  all  lands  acquired  by  virtue  of  the  preceding  section 
shall  constitute  a  part  and  portion  of  the  public  propert}^  of  the  govern- 
ment of  the  Philippine  Islands,  and  may  be  held,  sold,  and  convej^ed,  or 
leased  temporarily  for  a  period  not  exceeding  three  years  after  their 
acquisition  by  said  government  on  such  terms  and  conditions  as  it  ma}^ 
prescribe,  subject  to  the  limitations  and  conditions  provided  for  in  this 
Act:  Provided^  That  all  deferred  pa3'ments  and  the  interest  tliereon  shall 
be  payable  in  the  money  prescribed  for  the  pajuuent  of  principal  and 
interest  of  the  bonds  authorized  to  be  issued  in  pa3anent  of  said  lands 
hy  the  preceding  section  and  said  deferred  payments  shall  l)ear  inter- 
est at  the  rate  borne  by  the  bonds.  All  mone3^s  realized  or  received 
from  sales  or  other  disposition  of  said  lands  or  by  reason  thereof  shall 
constitute  a  trust  fund  for  the  payment  of  principal  and  interest  of 
said  bonds,  and  also  constitute  a  sinking  fund  for  the  payment  of  said 
bonds  at  their  maturity.  Actual  settlers  and  occupants  at  the  time 
said  lands  are  acquired  b}'  the  government  shall  have  the  preference 
over  all  others  to  lease,  purchase,  or  acquire  their  holdings  within 
such  reasonable  time  as  ma}^  be  determined  by  said  government. 

MUNICIPAL   BONDS   FOR   PUBLIC   IMPROVEMENTS. 

Sec.  0<j.  That  for  the  purpose  of  providing  funds  to  construct  sew- 
ers, to  furnish  adequate  sewer  and  drainage  facilities,  to  secure  a 
sufficient  supply  of  water,  and  to  provide  all  kinds  of  municipal  bet- 
terments and  improvements  in  nuuiicipalities,  tlie  government  of  the 
Philippine  Islands,  undei-  such  limitations,  tei-ms,  and  conditions  as  it 
may  prescribe,  with  the  consent  and  approval  of  the  President  and  the 


45()  REPORTS    OF    THE    CIVIL    OOYERNMENT 

Conorcss  of  the  United  States,  iniiy  permit  an}-  muiiieipality  of  said 
islands  to  incur  indebtedness,  borrow  money,  and  to  issue  and  sell  (at 
not  less  than  par  value  in  o-old  coin  of  the  United  States)  registered  or 
coupon  bonds  in  such  amount  and  payable  at  such  time  as  may  be 
determined  by  the  o-overnment  of  said  islands,  with  interest  thereon 
not  to  exceed  live  per  centum  per  annum:  Provided^  That  the  entire 
indebtedness  of  any  nuuiicipality  under  this  section  shall  not  exceed 
live  per  centum  of  the  assessed  valuation  of  the  property  in  said 
nuuiicipality,  and  any  obligation  in  excess  of  sucli  limit  shall  be  null 
and  void. 

Sec.  07.  That  all  nnmicipal  bonds  shall  be  in  denominations  of  fifty 
dollars,  or  an}'  multiple  thereof,  bearing  interest  at  a  rate  not  exceed- 
ing live  per  centum  per  amuun,  paya])le  quarterly,  such  l)onds  to  be 
payable  at  the  pleasure  of  the  government  of  the  Philippine  Islands, 
after  dates  named  in  said  bonds  not  less  than  five  nor  more  than  thirty 
years  from  the  date  of  their  issue,  together  with  the  interest  thereon, 
in  gold  coin  of  the  United  States  of  the  present  standard  value,  or  its 
e(piivalent  in  value  in  money  of  the  said  Islands;  and  said  bonds 
shall  l)e  exempt  from  the  payment  of  all  taxes  or  duties  of  the  gov- 
ernment of  the  Philippine  Islands,  or  any  local  authority  therein,  or 
the  (Tovernment  of  the  United  States. 

Sec.  68.  That  all  moneys  which  may  l)e  realized  or  received  from 
the  issue  and  sale  of  said  bonds  shall  ))e  utilized  vmder  authorization 
of  the  government  of  the  Philippine  Islands  in  providing  the  munici- 
pal improvements  and  betterment  which  induced  the  issue  and  sale  of 
said  bonds,  and  for  no  other  purpose. 

Sec.  f)9.  That  the  government  of  the  Philippine  Islands  shall,  by 
the  levy  and  collection  of  taxes  on  the  municipality,  its  inhabitants  and 
their  property,  or  by  other  means,  make  adequate  provision  to  meet 
the  obligation  of  the  bonds  of  such  municipality,  and  shall  create  a 
sinking  fund  sufhcicnt  to  retire  them  and  pay  the  interest  thereon  in 
accordance  w4th  the  terms  of  issue:  Provided^  That  if  said  bonds 
or  any  portion  thereof  shall  be  paid  out  of  the  funds  of  the  govern- 
ment of  said  islands,  such  municipality  shall  reimburse  said  government 
for  the  smn  thus  paid,  and  said  government  is  hereby  empowered  to 
collect  said  sum  by  the  levy  and  collection  of  taxes  on  such  nuuiicipality. 

Sec.  to.  That  for  the  purpose  of  pi^oviding  funds  to  construct 
sewers  in  the  city  of  Manila  and  to  furnish  it  with  an  adequate  sewer 
and  drainage  s3\stem  and  suppl}^  of  water  the  government  of  the  Philip- 
pine Islands,  with  the  approval  of  the  President  of  the  United  States 
first  had,  is  hereb}'  authorized  to  permit  the  city  of  Manila  to  incur 
indebtedness,  to  borrow  money,  and  to  issue  and  sell  (at  not  less  than 
par  value  in  gold  coin  of  the  United  States),  upon  such  terms  and  con- 
ditions as  it  ma}^  deem  best,  registered  or  coupon  bonds  of  the  city  of 
Manila  to  an  amount  not  exceeding  four  million  dollars  lawful  money 
of  the  United  States,  payable  at  such  time  or  times  as  may  be  deter- 
mined by  said  government,  with  interest  thereon  not  to  exceed  five 
per  centum  per  annum. 

Sec.  71.  That  said  coupon  or  registered  ])onds  shall  be  in  denomi- 
nations of  lifty  dollars  or  any  nmltiple  thereof,  bearing  interest  at  a 
rate  not  exceeding  hve  per  centum  per  annum,  payal)le  quarterly,  such 
bonds  to  ])e  payai)le  at  the  pleasure  of  the  government  of  the  Philip- 
pine Islands,  after  dates  named  in  said  bonds  not  less  than  live  nor 
more  than  thirty  years  from  the  date  of  their  issue,  together  with  the 


OF   THE    PHILIPPINE    ISLANDS,  1900-1903.  457 

interest  thereon  in  gold  coin  of  the  United  States  of  thie  present  stand- 
ard v;iliie,  or  the  equivalent  in  value  in  money  of  the  said  Islands;  and 
said  l)oiuls  shall  be  exempt  from  the  payment  of  all  taxes  or  duties  of 
the  government  of  the  said  Islands,  or  of  an}"  local  authority  therein, 
or  of  the  Government  of  the  United  States. 

Sec.  72.  That  all  moneys  which  may  be  realized  or  received  from 
the  issue  and  sale  of  said  bonds  shall  be  utilized  under  authorization  of 
said  government  of  the  Philippine  Islands  in  providing  a  suitable  sewer 
and  drainage  system  and  adequate  suppl}^  of  water  for  the  cit}'^  of 
Manila  and  for  no  other  purpose. 

Sec.  73.  That  the  government  of  the  Philippine  Islands  shall,  by 
the  levy  and  collection  of  taxes  on  the  city  of  Manila,  its  inhabitants 
and  their  property,  or  by  other  means,  make  adequate  provision  to 
meet  the  obligation  of  said  bonds  and  shall  create  a  sinking  fund  suffi- 
cient to  retire  them  and  pay  the  interest  thereon  in  accordance  with 
the  terms  of  issue:  Promded^  That  if  said  bonds  or  any  portion  thereof 
shall  be  paid  out  of  the  funds  of  the  government  of  said  islands,  said 
city  shall  reimburse  said  government  for  the  sum  thus  paid,  and  said 
government  is  hereby  empowered  to  collect  said  sum  by  the  levy  and 
collection  of  taxes  on  said  city. 

FRANCHISES. 

Sec.  74.  That  the  government  of  the  Philippine  Islands  may  grant 
franchises,  privileges,  and  concessions,  including  the  authority  to  exer- 
cise the  riglit  of  eminent  domain  for  the  construction  and  operation  of 
works  of  public  utility  and  service,  and  ma}'  authorize  said  works  to 
be  constructed  and  maintained  over  and  across  the  public  property  of 
the  United  States,  including  streets,  highways,  squares,  and  reserva- 
tions, and  over  similar  property  of  the  government  of  said  Islands,  and 
may  adopt  rules  and  regulations  under  which  the  provincial  and  munici- 
pal governments  of  the  islands  may  grant  the  right  to  use  and  occupy 
such  public  property  belonging  to  said  provinces  or  numicipalities :  Pro- 
tytded^  That  no  private  property  shall  be  taken  for  any  purpose  under  this 
section  without  just  compensation  paid  or  tendered  therefor,  and  that 
such  authority  to  take  and  occupy  land  shall  not  authorize  the  taking,  use, 
or  occupation  of  any  land  except  such  as  is  required  for  the  actual  neces- 
sary purposes  for  which  the  franchise  is  granted,  and  that  no  franchise, 
privilege,  or  concession  shall  be  granted  to  any  corporation  except 
under  the  conditions  that  it  shall  be  subject  to  amendment,  alteration, 
or  repeal  by  the  Congress  of  the  United  States,  and  that  lands  or 
rights  of  use  and  occupation  of  lands  thus  granted  shall  revert  to  the 
governments  by  which  they  were  respectively  granted  upon  the  ter- 
mination of  the  franchises  and  concessions  under  which  they  were 
granted  or  upon  their  revocation  or  repeal.  That  all  franchises,  privi- 
leges, or  concessions  granted  under  this  Act  shall  forbid  the  issue  of 
stock  or  bonds  except  in  exchange  for  actual  cash,  or  for  property  at 
a  fair  valuation,  e([ual  to  the  par  value  of  the  stock  or  bonds  so  issued; 
shall  forbid  the  declaring  of  stock  or  bond  dividends,  and,  in  the  case 
of  public-service  corporations,  shall  provide  for  the  cllective  regula- 
tion of  the  charges  thereof,  for  the  official  inspection  and  regulation 
of  the  books  and  accounts  of  such  coi-porations,  and  for  tlu^  payment 
of  a  reasonal)le  percentage  of  gross  earnings  into  the  treasury  of  the 
Philippine  Islands  or  of  the  province  or  numicipality  within  which 


458  EEPORTS    OF    THE    CIVIL    GOVERNMENT 

such  frimchiscs  are  granted  and  exercised:  Provided  further^  That  it 
shall  1)0  unlawful  for  any  corporation  organized  under  this  Act,  or  for 
any  person,  company,  or  cor])oration  receivino-  any  grant,  franchise, 
orconcession  from  the  govermuent  of  said  Islands,  to  use,  employ, 
or  contract  for  the  labor  of  persons  claimed  or  alleged  to  be  held  in 
involuntary  servitude;  and  any  person,  company,  or  corporation  so 
violating  the  provisions  of  this  Act  shall  forfeit  all  charters,  grants, 
franchises,  and  concessions  for  doing  lousiness  in  said  Islands,  and  in 
addition  shall  be  deemed  guilty  of  an  oft'ense,  and  shall  l)e  punished  by 
a  tine  of  not  less  than  ten  thousand  dollars. 

Sec.  To.  That  no  corporation  shall  be  authorized  to  conduct  the  busi- 
ness of  buying  and  selling  real  estate  or  be  permitted  to  hold  or  own 
real  estate  except  such  as  may  be  reasonably  necessary  to  enable  it  to 
carry  out  the  purposes  for  which  it  is  created,  and  every  corporation 
authorized  to  engage  in  agriculture  shall  by  its  charter  be  restricted 
to  the  owaiership  and  control  of  not  to  exceed  one  thousand  and  twenty- 
four  hectares  of  land;  and  it  shall  be  unlawful  for  any  member  of  a 
corporation  engaged  in  agriculture  or  mining  and  for  any  corporation 
organized  for  any  purpose  except  irrigation  to  bo  in  any  wise  inter- 
ested in  any  other  corporation  engaged  in  agriculture  or  in  mining. 
Corporations,  however,  may  loan  funds  upon  real-estate  security  and 
purchase  real  estate  when  necessary  for  the  collection  of  loans,  but 
they  shall  dispose  of  real  estate  so  obtained  within  five  years  after 
receiving  the  title.  Corporations  not  organized  in  the  Philippine 
Islands,  lind  doing  business  therein,  shall  be  bound  by  the  provisions 
of  this  section  so  far  as  they  are  applicable. 

COINAGE. 

Sec.  76.  That  the  government  of  the  Philippine  Islands  is  hereby 
authorized  to  establish  a  mint  at  the  city  of  Manila,  in  said  islands, 
for  coinage  purposes,  and  the  coins  hereinafter  authorized  may  be 
coined  at  said  mint.  And  the  said  government  is  hereby  authorized 
to  enact  laws  necessary  for  such  establishment:  Provided^  That  the 
laws  of  the  United  States  relating  to  mints  and  coinage,  so  far  as  appli- 
cable, are  hereby  extended  to  the  coinage  of  said  islands. 

Sec.  77.  That  the  government  of  the  Philippine  Islands  is  authorized 
to  coin,  for  use  in  said  islands,  a  coin  of  the  denomination  of  fifty 
centavos  and  of  the  weight  of  one  hundred  and  ninety-two  and  nine- 
tenth  grains,  a  coin  of  the  denomination  of  twenty  centavos  and  of 
the  weight  of  seventy-seven  and  sixteen  one-hundredths  grains,  and  a 
coin  of  the  denomination  of  ten  centavos  and  of  the  weight  of  thirty- 
eight  and  fifty-eight  one-hundredths  grains,  and  the  standard  of  said 
silver  coins  shall  be  such  that  of  one  thousand  parts  by  weight  nine 
hundred  shall  be  of  pure  metal  and  one  hundred  of  alloy,  and  the  alloy 
shall  be  of  copper. 

Sec.  78.  That  the  subsidiary  silver  coins  authorized  by  the  preceding 
section  shall  be  coined  under  the  authority  of  the  government  of  the 
Philippine  Islands  in  such  amounts  as  it  may  determine,  wdth  the 
appro\al  of  the  Secretary  of  War  of  the  United  States,  from  silver 
bullion  i)urchased  by  said  government,  with  the  approval  of  the  Sec- 
retary of  War  of  the  United  States:  Provided,  That  said  government 
may  in  addition  and  in  its  discretion  recoin  the  Spanish  Filipino^  dol- 
lars and  subsidiary  silver  coins  issued  under  the  authority  of  the  Span- 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  459 

i.sli  Government  for  use  in  said  islands  into  the  subsidiary  coins  pro- 
vided for  in  the  preceding-  section  at  such  rate  and  under  such  regula- 
tions as  it  ma}'  prescribe,  and  the  subsidiary  silver  coins  authorized 
by  this  section  shall  be  legal  tender  in  said  islands  to  the  amount  of 
ten  dollars. 

Sec.  79.  That  the  government  of  the  Philippine  Islands  is  also 
authorized  to  issue  minor  coins  of  the  denominations  of  one-half  cen- 
tavo,  one  centavo,  and  five  centavos,  and  such  minor  coins  shall  be 
legal  tender  in  said  islands  tor  amounts  not  exceeding  one  dollar.  The 
alio}'  of  the  iive-centavo  piece  shall  be  of  copper  and  nickel,  to  be  com- 
posed of  three-fourths  copper  and  one-fourth  nickel.  The  alloy  of  the 
one-centavo  and  one-half-centavo  pieces  shall  be  ninet3'-tive  per  centum 
of  copper  and  live  per  centum  of  tin  and  zinc,  in  such  proportions  as 
shall  be  determined  by  said  government.  The  weight  of  the  iive- 
centavo  piece  shall  be  seventy-seven  and  sixteen-hundredths  grains 
troy,  and  of  the  one-centavo  piece  eighty  grains  troy,  and  of  the  one- 
half-centavo  piece  fort}'  grains  troj'. 

Sec.  80.  That  for  the  purchase  of  metal  for  the  subsidiary  and 
minor  coinage,  authorized  by  the  preceding  sections,  an  appropriation 
may  be  made  b}'  the  government  of  the  Philippine  Islands  from  its 
current  funds,  which  shall  be  reimbursed  from  the  coinage  under  said 
sections;  and  the  gain  or  seigniorage  arising  therefrom  shall  be  paid 
into  the  treasurv  of  said  Islands. 

Sec.  81.  That  the  subsidiary  and  minor  coinage  hereinbefore  author- 
ized ma}'  be  coined  at  the  mint  of  the  government  of  the  Philippine 
Islands  at  Manila,  or  arrangements  may  be  made  by  the  said  govern- 
ment with  the  Secretary  of  the  Treasury  of  the  United  States  for  their 
coinage  at  any  of  the  mints  of  the  United  States,  at  a  charge  covering 
the  reasonable  cost  of  the  work. 

Sec.  82.  That  the  subsidiary  and  minor  coinage  hereinbefore  author- 
ized shall  bear  devices  and  inscriptions  to  be  prescribed  by  the  govern- 
ment of  the  Philippine  Islands  and  such  devices  and  inscriptions  shall 
express  the  sovereignty  of  the  United  States,  that  it  is  a  coin  of  the 
Philippine  Islands,  the  denomination  of  the  coin,  and  the  year  of  the 
coinage. 

Sec.  83.  That  the  government  of  the  Philippine  Islands  shall  have  the 
power  to  make  all  necessary  appropriations  and  all  proper  regulations 
for  the  redemption  and  reissue  of  worn  or  defective  coins  and  for 
carrying  out  all  other  provisions  of  this  Act  relating-  to  coinage. 

Sec.  8-1.  That  the  laws  relating  to  entry,  clearance,  and  manifests 
of  steamships  and  other  vessels  arriving  from  or  going  to  foreign 
ports  shall  apply  to  voyages  each  way  between  the  Philippine  Islands 
and  the  United  States  and  the  possessions  thereof,  and  all  laws  relat- 
ing to  the  collection  and  protection  of  customs  duties  not  inconsistent 
with  the  Act  of  Congress  of  March  eighth,  nineteen  hundred  and  two, 
''temporarily  to  provide  revenue  for  the  Philippine  Islands,"  shall 
apply  in  the  case  of  vessels  and  goods  arriving  from  said  Islands  in 
the  United  States  and  its  aforesaid  possessions. 

The  laws  relating  to  seamen  on  foreign  voyages  shall  apply  to  sea- 
men on  vessels  going  from  the  United  States  and  its  possessions  afore- 
said to  said  Islands,  the  customs  officers  there  ])eing  for  this  purpose 
substituted  for  consular  officers  in  foreign  ports. 
^  The  provisions  of  (•liai)ters  six  and  seven,  title  forty-eight,  Revised 
Statutes,  so  far  as  now  in  force,  and  any  amendments  thereof,  shall 
apply  to  vessels  making  voyages  cither  way  between   ports  of   the 


460  REPORTS    OF   THE    CIVIL    GOVEKWMENT 

rnitod  States  or  its  aforesaid  possessions  and  ports  in  said  Islands; 
and  the  provisions  of  law  relating  to  the  publie  liealth  and  (luarantine 
shall  apply  in  the  case  of  all  vessels  enterino-  a  port  of  the  United 
States  or  its  aforesaid  possessions  from  said  Islands,  where  the  customs 
otiicers  at  the  port  of  departure  shall  perform  the  duties  required  by 
such  law  of  consular  otiicers  in  foreign  ports. 

Section  three  thousand  and  ti\  e,  Revised  Statutes,  as  amended,  and 
other  existing'  laws  concerning  the  transit  of  merchandise  through  the 
United  States,  shall  apply  to 'merchandise  arriving  at  any  port  of  the 
United  States  destined  for  any  of  its  insular  and  continental  posses- 
sions, or  destined  from  any  of  them  to  foreign  countries. 

Nothing  in  this  Act  shall  be  held  to  repeal  or  alter  any  part  of  the 
Act  of  March  eighth,  nineteen  hundred  and  two,  aforesaid,  or  to  apply 
to  Guam,  Tutuila,  or  Manua,  except  that  section  eight  of  an  Act  enti- 
tled ''An  Act  to  revise  and  amend  the  tariff  laws  of  the  Philippine 
Archipelago,"  enacted  by  the  Philippine  Commission  on  the  seven- 
teenth of  September,  nineteen  hundred  and  one,  and  approved  by  an 
Act  entitled  "  An  Act  temporarily  to  provide  revenues  for  the  Philip- 
pine Islands,  and  for  other  purposes,"  approved  March  eighth,  nine- 
teen hundred  and  two,  is  hereby  amended  so  as  to  authorize  the  Civil 
Governor  thereof  in  his  discretion  to  establish  the  equivalent  rates  of 
the  money  in  circulation  in  said  Islands  with  the  money  of  the  United 
States  as  often  as  once  in  ten  davs. 

Sec.  85.  That  the  treasury  of  the  Philippine  Islands  and  such  bank- 
ing associations  in  said  islands  with  a  paid  up  capital  of  not  less  than 
two  million  dollars  and  chartered  by  the  United  States  or  any  State 
thereof  as  may  be  designated  bv  the"  Secretary  of  War  and  the  Secre- 
tary of  the  treasury  of  the  United  States  shall  l)e  depositories^  of 
public  money  of  the  United  States,  subject  to  the  provisions  of  exist- 
ing law  governing  such  depositories  in  the  United  States:  Provided^ 
That  the  treasury  of  the  government  of  said  islands  shall  not  be  required 
to  deposit  bonds  in  the  Treasury  of  the  United  States,  or  to  give  other 
specific  securities  for  the  safe-keeping  of  public  money  except  as  pre- 
scribed, in  his  discretion,  by  the  Secretary  of  War. 

Sec.  86.  That  all  laws  passed  by  the  government  of  the  Phdippme 
Islands  shall  be  reported  to  Congress,  which  hereby  reserves  the  power 
and  authority  to  annul  the  same,  and  the  Philippine  Commission  is 
hereby  directed  to  make  annual  report  of  all  its  receipts  and  expendi- 
tures to  the  Secretary  of  War. 

BUREAU    OF   INSULAR   AFFAIRS. 

Sec.  87.  That  the  Division  of  Insular  Affairs  of  the  War  Depart- 
ment, organized  bv  the  Secretary  of  War,  is  hereby  continued  until 
otherwise  provided,  and  shall  hereafter  be  known  as  the  Bureau  of 
Insular  Affairs  of  the  War  Department.  The  business  assigned  to 
said  Bureau  shall  embrace  all  matters  pertaining  to  civil  government 
is  the  island  possessions  of  the  United  States  subject  to  the  jurisdic- 
tion of  the  War  Department;  and  the  Secretary  of  War  is  hereby 
authorized  to  detail  an  officer  of  the  Army  whom  he  may  consider 
especiallv  well  qualified,  to  act  under  the  authority  of  the  Secretary 
of  War  as  the  chief  of  said  Bureau;  and  said  officer  while  acting  under 
said  detail  shall  have  the  rank,  pav,  and  allowances  of  a  colonel. 

Sec.  88.  That  all  Acts  and  parts  of  Acts  inconsistent  with  this  Act 
are  hereby  repealed. 

Approved  July  1,  1902. 


OF   THE    PHILIPPINE    ISLANDS,    1900-1903.  461 


[Public— No.  137.] 

An  Act  To  establish  a  standard  of  value  and  to  provide  for  a  coinage 
system  in  the  Philippine  Islands. 

Be  it  enacted  hy  the  Senate  and  House  of  Representatwes  of  the  United 
States  of  America  in  Congress  assemhled,  That  the  unit  of  value  in  the 
Philippine  Islands  shall  be  the  gold  peso  consisting  of  twelve  and  nine- 
tenths  grains  of  gold,  nine-tenths  tine,  said  gold  peso  to  become  the 
unit  of  value  when  the  government  of  the  Philippine  Islands  shall  have 
coined  and  ready  for,  or  in,  circulation  not  less  than  five  million  of  the 
silver  pesos  hereinafter  provided  for  in  this  Act,  and  the  gold  coins  of 
the  United  States  at  the  rate  of  one  dollar  for  two  pesos  hereinafter 
authorized  to  be  coined  shall  be  legal  tender  for  all  debts,  public  and 
private,  in  the  Philippine  Islands. 

Sec.  2.  That  in  addition  to  the  coinage  authorized  for  use  in  the 
Philippine  Islands  b}^  the  Act  of  July  first,  nineteen  hundred  and  two, 
entitled  "An  Act  temporarily  to  provide  for  the  administiation  of  the 
affairs  of  civil  government  in  the  Philippine  Islands,  and  for  other 
purposes,"  the  government  of  the  Philippine  Islands  is  authorized  to 
coin  to  an  amount  not  exceeding  seventy-five  million  pesos,  for  use  in 
said  islands,  a  silver  coin  of  the  denomination  of  one  peso  and  of  the 
weight  of  four  hundred  and  sixteen  grains,  and  the  standard  of  said 
silver  coins  shall  be  such  that  of  one  thousand  parts,  by  weight,  nine 
hundred  shall  be  of  pure  metal  and  one  hundred  of  alloy,  and  the  alloy 
shall  be  of  copper. 

Sec.  3.  That  the  silver  Philippine  peso  authorized  by  this  Act  shall 
be  legal  tender  in  the  Philippine  Islands  for  all  debts,  public  and  pri- 
vate, unless  otherwise  specifically  provided  by  contract:  Provided^ 
That  debts  contracted  prior  to  the  thirty-first  day  of  December, 
nineteen  hundred  and  three,  may  be  paid  in  the  legal-tender  currency 
of  said  islands  existing  at  the  time  of  the  making  of  said  contracts, 
unless  otherwise  expressly  provided  by  contract. 

Sec.  4.  That  section  seventj^-seven  of  the  Act  of  July  first,  nineteen 
hundred  and  two,  is  hereby  amended  so  that  it  shall  read: 

"Sp:c.  77.  That  the  government  of  the  Philippine  Islands  is  author- 
ized to  coin  for  use  in  said  islands  a  coin  of  the  denomination  of  fifty 
centavos  and  of  the  weight  of  two  hundred  and  eight  grains,  a  coin  of 
the  denomination  of  twenty  centavos  and  of  the  weight  of  eighty-three 
and  ten  onc-hundredths  grains,  and  a  coin  of  the  denomination  of  ten 
centavos  and  of  the  weight  of  forty-one  and  fifty-five  onc-hundredths 
grains;  and  the  standard  of  said  silver  coins  shall  be  such  that  of  one 
thousand  parts,  by  weight,  nine  hundred  shall  be  of  pure  metal  and 
one  hundred  of  alloy,  and  the  alloy  shall  be  of  copper." 

Sec.  5.  That  the  Philippine  peso  herein  authorized  and  the  sub- 
sidiary silver  coins  autlioi'ized  by  section  seventy-seven  of  the  Act  of 
July  first,  nineteen  hnn(li-(Ml  and  two,  as  amended  by  the  preceding 
section  of  this  Act,  shall  be  coined  under  the  authority  of  the  govern- 
ment of  the  Philippine  Islands  in  such  amounts  as  it  may  determine, 
with  the  approval  of  the  Secretary  of  War  of  tlie  United  States,  except 
as  limited  in  section  two  of  this  Act,  from  silver  bullion  purchased  by 

23181—04 30 


462  REPORTS    OF   THE    CIVIL    GOVERNMENT 

saiil  o-ovoniment,  with  the  approviil  of  the  Secretary  of  War  of  the 
I'liited  States:  Providrd^  That  said  o()vermnent  may,  in  its  discretion, 
in  lieu  of  the  purchase  of  bullion,  rccoin  any  of  the  silver  coins  now 
in  or  hereafter  received  by  the  treasury  of  the  governnicnt  of  the 
Philippine  Islands  into  the  coins  provided  for  in  this  Act  or  in  the  Act 
of  July  tirst,  nineteen  hundred  and  two,  as  herein  amended,  at  such 
rate  and  under  such  regulations  as  it  may  prescribe;  and  the  subsidiary 
silver  coins  authorized  by  this  Act  and  b}^  the  Act  of  July  first,  nine- 
teen hundred  and  two,  shall  be  legal  tender  in  said  islands  to  the 
amount  of  ten  dollars. 

Skc.  6.  That  the  coinage  authorized  by  this  Act  shall  be  subject  to 
the  conditions  and  limitations  of  the  provisions  of  the  Act  of  July  first, 
nineteen  hundred  and  two,  entitled  "An  Act  temporarily  to  provide 
for  the  administration  of  the  affairs  of  civil  government  in  the  Philip- 
pine Islands,  and  for  other  purposes,"  except  as  herein  otherwise  pro- 
vided; and  the  government  of  the- Philippine  Islands  may  adopt  such 
measures  as  it  may  deem  proper,  not  inconsistent  with  said  Act  of  July 
first,  nineteen  hundred  and  two,  to  maintain  the  value  of  the  silver 
Philippine  peso  at  the  rate  of  one  gold  peso,  and  in  order  to  maintain 
such  parity  between  said  silver  Philippine  pesos  and  the  gold  pesos 
herein  provided  for,  and  for  no  other  purpose,  may  issue  temporary 
certificates  of  indebtedness,  bearing  interest  at  a  rate  not  to  exceed 
four  per  centum  annuall}^  payable  at  periods  of  three  months  or  more, 
but  not  later  than  one  year  from  the  date  of  issue,  which  shall  be  in 
the  denominations  of  twenty-five  dollars,  or  fifty  pesos,  or  some  mul- 
tiple of  such  sum,  and  shall  be  redeemable  in  gold  coin  of  the  United 
States,  or  in  lawful  money  of  said  islands,  according  to  the  terms  of 
issue  prescribed  by  the  government  of  said  islands;  but  the  amount  of 
such  certificates  outstanding  at  any  one  time  shall  riot  exceed  ten  mil- 
lion dollars,  or  twenty  million  pesos,  and  said  certificates  shall  be 
exempt  from  the  payment  of  all  taxes  or  duties  of  the  government  of 
the  Philippine  Islands,  or  any  local  authority  therein,  or  of  the  Gov- 
ernment of  the  United  States,  as  well  as  from  taxation  in  any  form  by 
or  under  any  State,  municipal,  or  local  authority  in  the  United  States 
or  the  Philippine  Islands:  Provided.,  That  all  the  proceeds  of  said  cer- 
tificates shall  be  used  exclusively  for  the  maintenance  of  said  parity, 
as  herein  provided,  and  for  no  other  purpose,  except  that  a  sum  not 
exceeding  three  million  dollars  at  any  one  time  may  be  used  as  a 
continuing  credit  for  the  purchase  of  silver  bullion  in  execution  of 
the  provisions  of  this  Act. 

Sec,  7.  That  the  Mexican  silver  dollar  now  in  use  in  the  Philippine 
Islands  and  the  silver  coins  heretofore  issued  by  the  Spanish  Govern- 
ment for  use  in  said  islands  shall  be  receivable  for  public  dues  at  a  rate 
to  be  fixed  from  time  to  time  by  the  proclamation  of  the  civil  governor 
of  said  islands  until  such  date,  not  earlier  than  the  first  day  of  January, 
nineteen  hundred  and  four,  as  may  be  fixed  by  public  proclamation  of 
said  civil  governor,  when  such  coins  shall  cease  to  be  so  receivable: 
Provided,  That  the  public  offices  of  the  government  of  said  islands  shall 
give  a  preference  for  all  public  dues  to  the  silver  pesos  and  the  silver 
certificates  authorized  hy  this  Act,  and  may  at  any  time  refuse  to 
receive  such  Mexican  dollars  and  Spanish  coins  as  may  appear  to  be 
counterfeit  or  defective. 

Sec.  8.  That  the  treasurer  of  the  Philippine  Islands  is  hereby  author- 
ized, in  his  discretion,  to  receive  deposits  of  the  standard  silver  coins 


OF   THE    PHILIPPINE    ISLANDS,    1900-1903.  463 

of  one  peso  authorized  b}-  this  Act  to  be  coined,  at  the  treasury  of  the 
government  of  said  islands  or  any  of  its  branches,  in  sums  of  not  less 
than  twenty  pesos,  and  to  issue  silver  certificates  therefor  in  denomina- 
tions of  not  less  than  two  nor  more  than  ten  pesos,  and  coin  so  deposited 
shall  be  retained  in  the  treasury  and  held  for  the  paj'^ment  of  such  cer- 
tificates on  demand,  and  used  for  no  other  purpose.  Such  certificates 
shall  be  receivable  for  customs,  taxes,  and  for  all  public  dues  in  the 
Philippine  Islands,  and  when  so  received  may  be  reissued,  and  when 
held  bv  an}^  banking  association  in  said  islands  may  be  counted  as  a 
part  of  its  lawful  reserve. 

Sec.  9.  That  for  the  purchase  of  metal  for  the  silver  Philippine  peso 
authorized  by  this  Act,  an  appropriation  may  be  made  by  the  govern- 
ment of  the  Philippine  Islands  from  its  current  funds,  or  as  herein- 
before authorized,  which  shall  be  reimbursed  from  the  coinage  under 
said  sections. 

Sec.  10.  That  the  silver  Philippine  pesos  hereinbefore  authorized 
may  be  coined  at  the  mint  of  the  government  of  the  Philippine  Islands 
at  Manila,  or  arrangements  may  be  made  by  the  said  government  with 
the  Secretary  of  the  Treasury  of  the  United  States  for  their  coinage 
or  any  portion  thereof  at  any  of  the  mints  of  the  United  States,  at  a 
charge  covering  the  reasonable  cost  of  the  work. 

Sec.  11.  That  the  silver  Philippine  peso  hereinbefore  authorized 
shall  bear  devices  and  inscriptions  to  be  prescribed  by  the  government 
of  the  Philippine  Islands,  and  such  devices  and  inscriptions  shall 
express  the  sovereignty  of  the  United  States,  that  it  is  a  coin  of  the 
Philippine  Islands,  the  denomination  of  the  coin,  and  the  year  of  the 
coinage. 

Sec.  12.  That  the  Secretary  of  the  Treasury  is  hereby  authorized 
and  directed,  when  requested  by  the  government  of  the  Philippine 
Islands,  to  cause  to  l)e  made  and  prepared  any  drawings,  designs,  and 
plates,  and  execute  an}"  coinage,  engraving,  or  printing  of  notes  and 
certificates  authorized  by  this  Act,  and  to  make  a  proper  charge  for 
the  same,  covering  as  nearl}^  as  ma}"  be  the  actual  cost,  which  shall  be 
defrayed  from  the  revenues  of  said  islands. 

Sec.  13.  That  section  seventy-eight  of  the  Act  of  July  first,  nine- 
teen hundred  and  two,  and  all  Acts  and  parts  of  Acts  inconsistent  with 
the  provisions  of  this  Act,  and  all  provisions  of  law  in  force  in  the 
Philippine  Islands  making  any  form  of  money  legal  tender  after 
December  thirt3"-first,  nineteen  hundred  and  three,  except  as  provided 
in  this  Act,  are  hereby  repealed. 

Approved,  March  2,  1903. 


ANNUAL   REPORT 


PHILIPPINE    COMMISSION 


SECRETARY  OF  WAR. 


Manila,  P.  I.,  December '23,  1903. 

Sir:  The  Philippine  Commission  has  the  honor  to  submit  to  3'ou  its 
fourth  annual  report,  which  is  accompanied  hy  the  reports  of  the  civil 
governor,  the  secretary  of  commerce  and  police,  the  secretary  of 
finance  and  justice,  the  secretar.y  of  the  interior,  and  the  secretary 
of  public  instruction.  The  reports  were  delayed,  due  to  absence  and 
illness  of  two  or  three  of  the  Commission,  and  cover  varying  periods. 
The  report  of  the  Commission  extends  over  a  period  from  November 
1,  1902,  to  December  22,  1903. 

The  conditions  of  the  islands  as  to  tranquillity  are  quite  equal,  so  far 
as  peace  and  good  order  are  concerned,  to  what  they  were  at  any  time 
during  the  Spanish  regime.  There  are  centers  of  disturbance  in  the 
Moro  country,  but  they  do  not  offer  any  difliculty  in  their  removal. 
The  conditions  in  the  Jolo  group  are  shown  in  the  special  report  of 
Major-General  Wood,  governor  of  the  Moro  Province,  and  in  the 
report  of  the  civil  governor.  The  Commission  concurs  in  the  recom- 
mendation of  the  civil  governor  and  General  Wood  that  the  sultan  and 
datos  signing  the  so-called  Bates  treaty  be  notified  that  its  terms  are 
no  longer  l)inding  on  the  United  States  or  the  Philippine  government, 
and  that  the  Jolo  group  and  all  its  inhabitants,  including  the  sultan  of 
Jolo  and  the  signing  datos,  are  entirely  subject  to  the  Philippine  gov- 
ernnuuit  act  and  laws  passed  in  accordance  therewith. 

The  condition  as  to  the  food  supply  in  the  Archipelago  has  been 
dealt  witli  at  length  by  the  civil  governor  in  his  report  to  the  Com- 
mission, and  it  is  sufficient  to  say  that  the  $3,000,000  voted  by  Con- 
gress were  exceedingly  useful  in  aiding  the  islands  to  meet  emergencies 
which  grew  much  more  serious  than  they  were  supposed  to  be  at  the 
time  the  appropriation  was  made.  The  recovery  from  the  disastrous 
loss  of  cattle  through  the  rinderpest  must  of  necessity  be  slow,  and  it 

465 


466  REPORTS    OF    THE    CTVTL    GOVERNMENT 

can  not  ho  said  as  yet  that  the  Commission  has  reached  a  satisfactory 
sohition  of  the  ditiicult}',  or  that  it  can  be  certain  that  with  the  remain- 
der of  the  $3,000,000  it  may  greatly  alleviate  the  embarrassment  in 
agriculture  duo  to  the  absence  of  draft  cattle.  Still,  experiments  will 
be  continued,  and  it  may  be  that  a  remedy  will  be  found.  The  civil 
governor  in  his  report  to  the  Commission  has  set  forth  at  length  the 
dispositions  which  liave  l)een  made  of  the  money  Avhich  has  been 
expended  or  appropriated  out  of  the  $3,000,000  relief  fund.  The  law 
requires  that  the  civil  governor  should  give  an  account  of  this  expend- 
iture to  the  Secretary  of  War.  There  is  appended  to  the  report  of 
the  civil  governor  to  the  Commission  a  detailed  statement  of  expendi- 
tures by  the  auditor  so  far  as  it  can  be  made  down  to  the  date  of  his 
report.  In  order  to  prevent  a  duplication  of  matter  which  was  prop- 
erly part  of  the  Commission's  report  to  the  Secretary  of  War,  it  is 
hoped  that  the  report  of  the  civil  governor  with  the  auditor's  statement 
will  l)e  regarded  as  a  sufficient  compliance  with  the  law. 

The  revenues  of  the  islands  were  maintained  for  the  last  fiscal  year, 
and  the  balance  of  trade  for  the  year  with  respect  to  the  islands  was 
much  more  favorable.  The  balance  of  trade  against  the  islands  in 
merchandise  was  a  little  over  $8,000,000  for  the  fiscal  year  ending 
June  30,  1902.  For  the  fiscal  j^ear  ending  June  30,  1903,  it  was  about 
$150,000  in  favor  of  the  islands,  and  this  in  spite  of  the  importation 
of  $10,000,000  gold  of  rice,  an  increase  of.  nearly  four  millions  over 
last  year's  importation. 

The  conditions  with  respect  to  sugar  and  tobacco  continue  to  be  very 
unfavorable,  and  the  arguments  in  favor  of  a  reduction  of  the  Dingley 
tarifl'  upon  these  articles,  to  25  per  cent  of  the  rates  of  that  tariff  on 
sugar  and  tobacco  from  the  Philippines,  grow  stronger  instead  of 
weaker. 

On  the  22d  of  December,  1903,  contracts  were  signed  with  the 
owners  of  the  so-called  friars'  lands  and  by  the  civil  governor,  with 
the  approval  and  consent  of  the  Commission  and  the  Secretary  of  War, 
by  which,  for  a  lump  sum  of  $7,239,000,  more  or  less,  all  the  agricul- 
tural holdings  of  the  friars  in  the  Philippines  were  agreed  to  be  trans- 
ferred to  the  Philippine  government,  except  about  10,000  acres,  the 
reason  for  the  exception  of  which  is  stated  in  the  report  of  the  civil 
governor.  By  these  contracts,  when  consunmiated,  something  more 
than  400,000  acres,  three-fifths  of  which  have  been  highly  cultivated 
land  and  are  thickly  inhabited  b}^  thousands  of  tenants,  will  be  trans- 
ferred to  the  Government.  This  step  has  been  recommended  by  the 
Commission  in  its  previous  reports,  by  the  Paris  Peace  Commission, 
and  by  the  Schurman  Commission  as  important  in  producing  perma- 
nent tranquillity  in  the  islands.  Many  of  the  tenants  have  urged  the 
.Purchase  upon  the  Government. 


OF    THE    PHILIPPINE    ISLANDR,   1900-1903.  467 

The  Commission  is  in  a  i^osition  to  say  that  the  number  of  Spanish 
friars  in  the  islands  is  being  gradual!}^  reduced,  so  that  out  of  more 
than  1,000  that  were  here  in  1898  there  were  but  370  on  December  1, 
1902,  and  now  there  are  but  246;  that  of  these  a  number  are  infirm 
and  unable  to  do  parish  work,  and  that  83  Dominicans  have  renounced 
parish  work  altogether  with  the  Holy  See,  and  that  the  policy  of  the 
church,  therefore,  in  not  sending  back  to  the  parishes  Spanish  friars 
where  it  can  be  avoided,  o*r  where  they  will  not  be  well  received  by 
the  people,  has  been  sufficiently  shown  by  the  facts.  The  intention  of 
the  Roman  Catholic  Church  to  Americanize  the  church  in  the  Philip- 
pines is  also  shown  by  the  appointment  of  American  Catholic  bishops 
and  one  Filipino  bishop  to  fill  the  episcopal  see  of  the  islands.  Not 
one  Spanish  friar  bishop  remains.  It  is  also  understood  from  the  cor- 
respondence with  Cardinal  Rampolla  and  subsequent  information 
received,  that  of  the  money  to  be  paid  under  the  purchase  to  the 
religious  orders  by  present  owners,  a  large  part  will  be  devoted  to 
church  purposes  in  the  islands  by  the  supreme  authority  of  the  church. 
It  can  be  safely  stated,  therefore,  that  the  most  important  of  the  mat- 
ters which  the  President  and  the  Secretary  of  War  proposed  to  adjust 
by  sending  the  civil  governor  to  Rome  to  confer  concerning  matters  of 
difference  between  the  Roman  Church  and  the  Philippine  government 
have  been  adjusted,  or  are  on  a  fair  way  to  satisfactory  settlement. 

There  still  remain  the  fixing  of  the  amount  due  for  rent  of  and 
damages  to  buildings  belonging  to  the  church,  occupied  by  United 
States  troops,  from  the  United  States  Government,  and  the  adjust- 
ment of  certain  trusts,  the  character  of  which,  as  to  being  secular  or 
religious,  is  in  dispute. 

The  disposition  of  the  friars'  lands  agreed  to  be  purchased  will  entail 
a  very  heavy  burden  upon  the  Philippine  government,  but  it  is  thought 
that  in  the  course  of  ten  or  fifteen  years  the  distribution  of  the  lands 
can  be  successfully  effected  to  those  now  lawfully  in  possession  as 
tenants.  The  history  of  the  negotiations  for  the  purchase  are  fully  set 
forth  in  the  report  of  the  civil  governor. 

The  income  from  customs  and  other  regular  taxes  has  been  falling 
off  for  the  last  six  months,  and  there  is  some  reason  to  expect  that  the 
income  for  the  year  ending  June  80,  190-1,  will  bo  considerably  less 
than  that  for  the  year  ending  June  30,  1903.  Much  of  the  money 
which  has  been  expended  during  the  current  eighteen  months  has  been 
applied  to  permanent  improvements  or  to  extraordinary  expenditures 
like  the  cholera  ($300,000),  the  census  ($694,000),  and  the  St.  Louis 
Exposition  ($575,000);  $2,500,000  have  been  expended  or  are  under 
appropriation  for  extensive  port  works.  It  is  (piitc  possible  that  with 
the  pressure  for  enlargement  in  the  branches  of  pu]>lic  education  and 
in  other  bureaus  which  call  for  expansion  there  will  be  a  deficit  dur- 


468  REPORTS    OF    THE    CIVIL    GOVERNMENT 

iiio-  a  perioil  of  rodueod  income,  duo  to  the  depressed  condition  of  agri- 
culture. If  provision  should  be  made  by  which  the  Commission  could 
issue  bonds  to  pay  for  permanent  improvements,  like  port  works  or 
the  construction  of  heavy  ])ridges  or  other  works  of  great  utility 
usuall}'  paid  for  under  other  governments  by  bond  issues,  the  embar- 
rassment of  a  deficit  could  certainly  be  avoided.  It  is  thought  that  it 
would  not  be  extending  too  great  power  to  the  Connnission,  with  the 
consent  of  the  President  of  the  United  States  and  the  Secretary  of 
War,  from  time  to  time  to  issue  bonds  not  exceeding  in  the  aggregate 
^5,000,000  to  pay  the  cost  of  permanent  improv^ements  like  the  con- 
struction of  port  Avorks  or  bridges  or  of  large  provincial  or  city  school - 
houses.  For  the  latter  purpose,  that  of  schoolhouses,  two  or  three 
millions  of  dollars  might  easily  be  spent  and  not  one  dollar  wasted. 
The  crying  need  throughout  the  islands  is  school  capacity,  and  the 
chief  cause  for  the  fact  that  only  about  10  per  cent  of  the  children  of 
school  age  attend  the  public  schools  is  the  limitation  upon  the  school- 
room. The  erection  of  handsome,  permanent,  airy,  and  healthy  school- 
houses  would  have  an  excellent  effect  both  in  enlarging  the  school 
capacity  and  in  giving  ocular  demonstration  of  the  importance  which 
the  government  attaches  to  the  general  system  of  education. 
Section  66  of  the  so-called  Philippine  act  of  Congress  provides: 

That  for  the  purpose  of  providing  funds  to  construct  sewers,  to  furnish  adequate 
sewer  and  drainage  facilities,  to  secure  a  sufficient  supply  of  water,  and  to  provide 
all  kinds  of  municipal  betterments  and  improvements  in  municipalities,  the  govern- 
ment of  the  Philippine  Islands,  under  such  limitations,  terms,  and  conditions  as  it 
may  prescribe,  with  the  consent  and  approval  of  the  President  and  the  Congress  of 
the  United  States,  may  permit  any  municipality  of  said  islands  to  incur  indebted- 
ness, borrow  money,  and  to  issue  and  sell  (at  not  less  than  par  value  in  gold  coin  of 
the  United  States)  registered  or  coupon  bonds  in  such  amount  and  payable  at  such 
time  as  may  be  determined  by  the  government  of  said  islands,  with  interest  thereon 
not  to  exceed  five  per  centum  per  annum :  Provided,  That  the  entire  indebtedness 
of  any  municipality  under  this  section  shall  not  exceed  five  per  centum  of  the  assessed 
valuation  of  the  property  in  said  municipality,  and  any  obligation  in  excess  of  such 
limit  shall  be  null  and  void. 

It  seems  to  the  Commission  that  section  66  ought  to  be  amended  by 
striking  out  the  words  "and  the  Congress  of  the  United  States,"  con- 
tained in  the  seventh  line  thereof,  and  that  with  the  continuance  of 
the  limitation  that  the  bond  issue  shall  not  exceed  5  per  cent  of  the 
assessed  valuation  of  the  property  in  the  municipality,  the  require- 
ment that  the  Commission  and  the  President  shall  approve  the  bond 
issue  before  it  can  be  made  will  be  a  quite  sufficient  barrier  against 
abuse  of  the  power.  The  cumbersomeness  of  the  requirement  that 
Congress  shall  be  applied  to  for  the  issuing  of  bonds  for  any  one  of 
the  nine  hundred  different  towns  of  the  Archipelago,  will,  it  seems  to 
us,  at  once  strike  the  impartial  observer.     The  limitation  of  5  per  cent 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  469 

upon  the  assessed  valuation  is  of  itself  a  very  great  one,  and  in  man}" 
instances  will  prevent  the  making  of  useful  improvements  by  means 
of  a  bond  issue,  but  such  as  the  authority  is,  it  ought  not  to  be 
restricted  by  a  further  burdensome  requirement  that  we  should  go  to 
Congress  for  assistance  in  the  case  of  each  municipality.  It  is  sincerely 
hoped  that  there  are  many  municipalities  in  which,  b}-  a  bond  issue  of 
this  sort,  a  healthful  water  supph^  could  be  obtained  either  b}^  gravity 
or  sunken  wells,  and  the  CJommission  is  earnestly  desirous  of  beginning 
this  work  as  soon  as  possible. 

Attention  was  called  in  the  last  report  of  the  Commission  to  the  fact 
that  in  the  case  of  the  bonds  to  be  issued  in  the  pa3mient  of  the  friars' 
lands,  their  exemption  was  made  to  extend  not  only  to  Federal  and 
Philippine  taxes,  but  also  to  the  taxation  of  States,  counties,  and 
municipalities  of  the  United  States,  and  that  by  this  means  it  was 
made  possible  to  secure  a  verj^  much  lower  rate  of  interest  than  with- 
out the  exemption  from  State,  municipal,  and  county  taxation  in  the 
United  States.  With  respect  to  the  bonds  to  be  issued  to  pay  for  the 
sewer  and  water  supply  systems  in  Manila,  the  exemption  did  not 
include  that  from  State,  county,  and  municipal  taxation.  As  the  whole 
effort  of  the  Government  of  the  United  States  in  these  islands  is  a 
national  one,  it  does  not  appear  to  the  Commission  why  a  distinction 
should  be  made,  and  it  is  again  urgently  recommended  that  all  bonds 
to  be  issued  b}"  virtue  of  the  Philippine  act  should  be  exempt  not 
only  from  Federal  and  Philippine  taxation,  but  also  from  State,  and 
municipal,  and  county  taxation. 

The  operation  of  the  coastwise  trade  laws  of  the  United  States,  in 
respect  to  trade  between  the  islands  of  the  Philippine  Archipelago  and 
to  trade  between  those  islands  and  the  mainland  of  the  United  States, 
have  been  suspended  by  act  of  Congress  until  July  1,  1904.  If  Con- 
gress were  to  take  no  action  and  to  allow  the  coastwise  navigation 
laws  to  become  applicable  to  the  interisland  trade  of  these  islands  and 
to  the  trade  between  the  islands  and  the  United  States  as  they  now 
are,  most  disastrous  results  woidd  follow.  It  is  earnestly  recommended 
that  the  regulation  of  the  coastwise  trade,  so  far  as  it  relates  to  the 
trade  between  the  islands  of  the  Philippine  Archipelago,  l)c  left 
wholly  to  the  discretion  of  the  Philippine  (yommission,  suliject  to  the 
approval  of  the  Secretary  of  War  and  the  President  of  the  United 
States,  and  that  the  trade  between  tlie  islands  and  the  mainland  of  the 
United  States  ])e  continued  as  at  present  b}^  suspending  the  application 
of  the  trading  laws  of  the  United  States  for  five  years  longer,  to  wit, 
until  July  1,  1!)09.  The  reasons  for  this  recommendation  will  be 
found  set  forth  in  the  report  of  the  civil  governor,  and  still  more  in 
detail  in  the  reports  of  the  secretary  of  finance  and  justice  and  the 
reports  of  the  insular  collector  of  customs,  Mr.  W.  Morgan  Shuster. 


470  REPOHTS    OF    THE    OTVIL    GOVERNMENT 

Since  the  above  was  written,  it  has  come  to  the  knowledge  of  the 
Commission  that  a  bill  has  been  introduced  in  Congress  applying  the 
coastwise  law  to  trade  between  the  islands  and  the  niaiidand  of  the 
United  States.  The  danger  from  this  of  increasing  the  freight  rates 
and  thus  imposing  an  additional  burden  upon  the  trade  of  the  iskmds 
nuist  be  obvious  to  anyone  who  has  examined  the  facts  with  respect  to 
the  percentage  of  the  business  now  done  between  the  islands  and  the 
mainland  of  the  United  States  in  American  bottoms.  The  Conuuission, 
of  course,  can  not  present  any  objection  to  legislation  which  shall  unite 
more  closely  the  Philippine  Islands  with  the  United  States  in  Ijonds  of 
amity  and  mutually  beneficial  business  relations,  but  it  most  urgently 
and  earnestly  invites  your  attention,  and  that  of  Congress,  to  the  great 
injustice  which  will  be  done  to  the  islands  if  the  law  which  limits  the 
means  of  comnmnication  to  American  bottoms  between  the  United 
States  and  the  Philippine  Islands  does  not  at  the  same  time  and  as  a 
consideration  for  this  interference  with  the  natural  laws  of  trade  and 
the  necessary  increase  of  freight  rates,  strike  down  the  tariil'  wall  made 
by  the  Dingley  tariff  in  the  matter  of  the  importation  of  sugar  and 
tobacco  from  the  islands  to  the  mainland.  The  people  of  the  islands 
may  well  ask,  "What  advantage  are  we  to  get  out  of  association  with 
the  United  States  in  a  business  way,  if  our  trade  is  to  be  used  only  for 
the  purpose  of  increasing  the  business  of  American  ships  while  the 
limitation  of  the  coastwise  laws  l)y  increasing  the  freight  rates  will 
reduce  the  business  that  we  now  have  with  that  country?" 

Does  not  every  consideration  of  justice  require  that  if  the  Philip- 
pine Islands  are  to  be  treated  as  a  part  of  the  United  States  and  sub- 
ject to  the  coastwise  laws,  they  should  enjoy  the  same  freedom  of 
trade  with  the  United  States  which  is  enjoyed  by  every  other  part  of 
the  United  States  to  which  those  coastwise  laws  are  made  applicable? 

We  respectfully  urge,  therefore,  that  as  a  condition  and  as  a  con- 
sideration for  making  the  trade  between  the  islands  and  the  United 
States  coastwise  trade,  the  duty  on  sugar  and  tobacco  should  be 
reduced  to  not  more  than  25  per  cent  of  the  Dingley  rates. 

Now  that  conditions  of  tranquility  have  been  completely  restored  to 
the  islands,  the  time  has  arrived  for  the  material  improvements  in  the 
islands  by  great  works  of  construction,  and  especially  the  building  of 
railroads.  In  tropical  countries  the  cost  of  construction  and  main- 
tenance of  a  railroad  is  much  less  in  comparison  with  that  of  the  con- 
struction and  maintenance  of  a  wagon  road  than  in  the  temperate  zone. 
The  effect  of  the  torrential  rains  on  wagon  roads  is  so  destructive  that 
their  maintenance  each  year  is  almost  equal  to  their  original  cost  of 
construction  in  many  places  in  the  Philippine  Islands  where  good  road 
material  is  difficult  to  ol)tain.  It  becomes  therefore  more  important 
in  these  islands  to  have  railroads  than  wagon  roads,  and  we  believe 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  47 1 

sincerel}^  that  the  stimulation  of  the  construction  of  railroads  b}^  Gov- 
ernment guarant}'  of  a  certain  income  is  fulh'  warranted. 

We  are  opposed  to  the  granting-  of  lands  as  a  subsidy  for  the  con- 
struction of  roads,  and  favor  the  definite  fixing  of  the  Government  lia- 
bility by  guaranty  of  the  income  on  a  fixed  investment.  In  this  way 
we  feel  certain  that  the  construction  of  a  large  part  of  the  needed 
trunk  lines  in  the  islands  can  be  brought  about.  In  our  view  a 
guaranty  of  income  not  exceeding  4  per  cent  is  all  that  is  required, 
and  in  many  instances  a  grant  of  less  than  that  will  suppl}-  the  needed 
capital.  We  think  that  the  making  of  such  guaranties  might  well  be 
left  to  the  Commission,  with  the  approval  of  the  Secretary  of  War 
and  the  President  of  the  United  States. 

The  Commission  retains  its  opinion  already  expressed  that  the 
limitation  upon  the  holding  of  land  in  the  islands  by  corporations 
to  2,500  acres  is  a  needless  hindrance  to  the  development  of  the 
islands,  and  that  the  limitation  ought  cither  to  be  removed  entirely  or 
to  be  increased  so  as  to  allow^  the  acquisition  of  at  least  25,000  acres  of 
land.  In  cases  in  which,  in  order  to  justify  the  expenditure  of  the 
amount  of  capital  required  to  conduct  sugar  and  other  agricultural 
industries  on  a  pajang  basis,  a  very  large  amount  of  money  is  needed, 
the  restriction  of  corporations  to  the  ownership  of  2,500  acres  is  prac- 
tically prohibitor}'  upon  such  enterprises. 

Again,  the  chief  of  the  mining  bureau  and  the  secretary  of  the 
interior  recommend  that  the  provision  of  the  present  mining  laws 
which  prevents  the  location  of  more  than  one  claim  by  a  single  indi- 
vidual or  association  upon  a  lode  or  deposit  should  be  stricken  out. 
The  Commission  entirely  concurs  in  this  view.  Attention  is  also 
called  to  the  fact  that  that  part  of  the  Philippine  act  which  relates  to 
mining  needs  some  amendments  of  smaller  importance,  but  which  are 
quite  necessary.  Thus,  both  standards  of  measurement  are  used  in  the 
act,,  whereas  the  metric  system  alone  ought  to  l)e  used.  Again,  the 
recording  of  mining  claims  is  forbidden  without  certain  requisites. 
The  chief  of  the  l)ureau  is  strongly  of  opinion  that  all  such  claims 
ought  to  be  recorded,  and  then  their  legal  eflfect  after  recording  should 
be  left  to  the  courts.  He  thinks  the  present  provision  intrusts  too 
much  power  to  the  recording  officer. 

The  Commission  therefore  has  the  honor  to  recommend  that  Con- 
gress be  refiuested  to  enact  legislation  as  follows: 

First.  Legislation  which  shall  redu(H^  the  tariff  on  sugar  and  tobacco 
imported  from  the  Philippine  Islands  to  not  more  than  25  per  cent  of 
the  present  Dingley  rates  on  tobacco  and  sugar  imported  from  foreign 
countries. 

Second.  Legislation  authorizing  the  Philippine  Commission,  with 
the  approval  of  the  President  and  the  Secretary  of  War,  to  issue  bonds 


472  REPORTS    OF    THE    OTVTL    OOVERKMENT 

from  time  to  time,  whicli  shall  not  in  the  aggregate  sum  exceed 
^5,000,000,  for  tho  making  of  future  permanent  improvements. 

Third.  An  amonchnont  to  section  Gi]  of  an  act  entitled  "  An  act 
temporarily  to  provide  for  the  administration  of  the  affairs  of  civil 
government  in  the  Philippine  Islands,  and  for  other  purposes,"  by 
which  the  consent  of  Congress  to  issue  the  ])onds  therein  provided  for 
may  not  be  required. 

Fourth.  Legislation  providing  that  all  bonds  authorized  to  be  issued 
b}'  the  Philippine  government  or  an}^  provincial  or  municipal  govern- 
ment thereof  by  act  of  Congress  shall  l)c  made  exempt  not  only  from 
Federal  and  Philippine  taxation,  but  from  State,  county,  and  municipal 
taxation  in  the  United  States. 

Fifth.  That  control  over  the  shipping  in  the  trade  between  the 
islands  shall  be  left  wholly  to  the  discretion  of  the  Philippine  Com- 
mission, subject  to  the  approval  of  the  President  and  the  Secretary  of 
War. 

Sixth.  That  the  application  of  the  United  States  coastwise  naviga- 
tion laws  to  the  trade  between  the  Philippine  Islands  and  the  mainland 
of  the  United  States  be  postponed  b}^  Congressional  action  until  July  1, 
1909;  or,  in  the  alternative,  that  the  coastwise  laws  of  the  United 
States  be  not  made  applicable  to  the  trade  between  the  islands  and  the 
mainland  of  the  United  States,  except  with  a  proviso  or  condition  that 
the  rates  upon  imports  from  the  Philippine  Islands  into  the  United 
States  shall  not  pay  duty  in  excess  of  25  per  cent  of  the  I'ates  on  such 
merchandise  imposed  by  the  Dingley  tariff. 

Seventh.  That  authority  be  given  by  Congressional  act  to  the 
Philippine  Commission,  with  the  approval  of  the  President  and  the 
Secretary  of  War,  to  encourage  the  investment  of  capital  in  the  coij- 
struction  of  railroads  for  the  Philippine  Islands  by  accompanying 
the  grants  of  franchises  to  build  railroads,  in  cases  where  it  is  deemed 
necessary,  with  a  guaranty  b,y  the  Philippine  government  of  income 
on  the  amount  of  the  investment  to  be  fixed  in  advance  in  the  act  of 
guaranty,  the  amount  of  income  guaranteed  not  to  exceed  annually 
4  per  cent  of  the  fixed  principal. 

Eighth.  That  the  amount  of  land  which  may  be  acquired,  owned, 
and  used  for  agricultural  purposes  in  the  Philippines  bj^  anj^  individual 
or  coi-poration  shall  be  extended  to  25,000  acres. 

Ninth.  That  the  clause  which  forbids  the  filing  of  more  than  one 
mining  claim  by  the  same  individual  or  association  upon  a  lode  or 
deposit  be  repealed. 

Tenth.  That  the  provisions  of  the  Philippine  act  entitled  "An  act 
temporaril}^  to  provide  for  the  administration  of  the  affairs  of  civil 
government  in  the  Philippine  Islands,  and  for  other  purposes,"  which 
apply  to  mining  claims,  and  the  procedure  in  filing  them,  shall  be  so 
amended  that  ouh^  the  metric  system  of  distances  shall  be  used,  and 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  473 

shall  also  be  so  amended  that  mining  claims  shall  be  filed  whciher 

proi^erly  executed  according-  to  law  or  not,  the  effect  of  their  execution 

and  record  to  be  left  to  future  adjudication. 

Respectfully  submitted. 

Wm.  H.  Taft,  President. 
For—  ' 

Dean  C.  Worcester, 

Luke  E.  Wright-, 

Henry  C.  Ide, 

T.  H.  Pardo  de  Tavera, 

Benito  Legarda, 

Jose  Luzuriaga, 

James  F.  Smith, 

Co  n  I  III  issio7iers. 

The  honorable  the  Secretary  of  War. 

Washington.,  D.  C, 


REPORT  OF  THE  CIVIL  GOVERNOR  FOR  THE 
PERIOD  ENDING  DECEMBER  23,  1903. 


Manila,  P.  I.,  Nommher  16,  1903. 

Gentlemen:  I  have  the  honor  to  submit  a  report  to  you  on  the 
general  conditions  in  the  islands  and  on  the  affairs  of  the  bureaus 
which  b}^  law  are  under  the  direct  supervision  of  the  civil  governor. 
The  report  of  last  j^ear,  upon  the  subjects  treated  in  this  report  gen- 
erally, covered  a  period  ending  October  1,  1902.  I  shall  attempt  to 
make  this  report  cover  the  period  ending  December  23,  1903. 

This  has  been  a  year  of  considerable  suffering  among  the  people  of 
the  Philippine  Islands.  The  depressing  causes  referred  to  in  my  last 
report  united  to  bring  on  in  July  and  August  last  a  short  food  supply. 
The  worst  has  passed,  and  while  the  immediate  future  is  not  as  bright 
as  it  might  be,  I  believe  that  we  are  beginning  an  era  in  the  history  of 
the  islands  which,  with  the  assistance  of  proper  tariff  reduction  in  the 
United  States  and  proper  navigation  laws  for  the  islands,  will  ho,  one 
of  decided  material  development. 

In  November,  1902,  the  price  of  rice  rose  rapidly  in  Manila  and  the 
provinces,  and  authentic  information  reached  the  Commission  that  a 
syndicate  had  been  formed  by  certain  merchants  of  Manila  and  else- 
where to  effect  a  corner  in  this  food  of  the  people  and  to  control  its 
price.  The  situation  warranted  extraordinary  action  to  prevent  hard- 
ship and  suffering.  On  the  1th  of  November,  1902,  therefore,  the 
Commission  passed  Act  No.  195,  a  copy  of  which  is  appended  under 
Exhibit  A,  appropriating  $2,000,000  Mexican  to  defray  the  expense 
of  bujnng  and  distributing  rice  at  a  reasonable  price  to  the  inhab- 
itants of  those  provinces  in  which  the  market  price  was  too  high.  By 
the  terms  of  the  law  the  rice  was  bought  under  direction  of  the  civil 
governor  and  was  distributed  under  the  orders  of  the  same  officer  for 
cash  and  at  a  price  which  would  cover  cost  and  all  expenses.  Subse- 
quently the  restriction  as  to  price  was  repealed.  In  attempting  to 
buy  rice  in  Saigon,  the  source  of  rice  supply  nearest  to  the  Philip- 
pines, the  Commission  was  informed  that  the  supply  from  there  was 
exhausted.  Thereupon  application  Avas  made  to  the  consul  at  Bang- 
kok for  Siam  rice  and  also  to  the  consul  at  Calcutta  for  Calcutta  rice. 

476 


470  REPORTS    OF    THE    CIVIL    GOVERNMENT 

Jt  WHS  found  nocessaiT  to  «;■()  into  these  distant  markets  because  the 
s\  lulicate  evidently  controlled  the  Saij^'on  market. 

The  purchases  of  rice,  Avith  the  cost  of  storing,  distribution,  and 
wastag-e,  did  not  pro\e  to  be  profitable  as  a  mere  investment.  An 
especially  severe  loss  was  suffered  in  the  rice  purchased  at  Calcutta. 
We  bought  there  what  was  called  "first-class  famine  rice."  On 
arrival  this  proved  to  be  an  inferior  (iuality  of  red  rice,  which  soon 
developed  weevils  and  in  its  deteriorating  condition  had  to  be  sold  at  a 
considerable  loss.  It  was  probably  necessary  to  go  as  far  as  Calcutta 
to  break  the  corner,  but  it  would  have  l)een  wiser  to  buy  a  better 
quality  of  rice. 

None  of  the  rice  in  question  was  given  away;  it  was  held  in  Manila 
and  sent  to  the  various  provinces  as  word  was  received  from  the  gov- 
ernors that  the  local  dealers  were  raising  the  price  of  rice  beyond 
what  was  reasonable.  Our  purchases  in  Siam  and  Calcutta  broke  the 
corner,  and  rice  fell  in  price.  It  then  became  necessary  to  dispose  of 
the  rice  on  hand  to  dealers  in  Manila  and  in  other  parts  of  the  Archipel- 
ago at  such  price  as  could  be  obtained.  A  large  part  of  the  Calcutta 
purchase  w^as  sold  to  a  firm  having  control  of  certain  small  coastwise 
steamers  of  small  draft  which  plied  from  port  to  port  and  peddled  out 
cargoes  of  the  poor  rice  through  Chinamen.  The  contract  of  sale 
forbade  under  bond  penalty,  disposition  of  the  rice  at  a  price  greater 
than  $6.50  Mexican  per  picul  of  137i  pounds,  plus  actual  cost  of  freight. 
This  was  not  an  unreasonable  price  for  that  quality  of  rice  in  the 
provinces. 

The  purchases  of  rice  under  Act  No.  495  in  Mexican  money  amounted 

to - 11,815,974.81 

And  the  sales  amounted  to 1,567,642.00 

Loss  from  wastage  and  poor  Calcutta  rice 248,  332. 81 

The  details  of  these  Government  transactions  can  be  seen  by  refer- 
ence to  the  report  of  the  insular  purchasing  agent,  made  an  exhibit 
hereto,  marked  Exhibit  B.  On  the  purchase  under  Act  495  the  loss 
to  the  Government,  at  the  then  prevailing  rate,  was  thus  about  $100,000 
gold.  Considering  that  by  this  action  rice  at  a  reasonable  price  was 
secured  to  six  millions  of  people  for  one  season  when  they  were  threat- 
ened with  starvation  prices,  the  money  was  not  badly  spent.  The 
losses  sustained  by  the  syndicate  who  attempted  the  corner  was  suffi- 
cient to  prevent  another  combination  of  the  kind.  It  will  be  noted 
that  the  money  spent  under  Act  No.  495  was  appropriated  from  the 
general  funds  of  the  insular  treasury,  and  did  not  come  out  of  the 
three  millions  appropriated  by  act  of  Congress  for  relief  of  the  dis- 
tress in  the  islands,  subsequently  passed. 

Anticipating  that  the  small  rice  acreage,  due  to  the  absence  of  cattle 
and  other  causes,  would  not  be  sufficient  to  furnish  food  enough  for 


OF    THE    PHILIPl'INE    ISLANDS,    1!K)0-1903.  477 

the  inhabitants  during  the  year  1903,  the  Commission  passed  an  act 
to  provide  against  the  danger  of  famine  dated  November  12,  1902, 
and  numbered  517.  By  this  act  it  was  made  the  duty  of  municipal 
presidents  in  all  the  towns  of  the  islands  to  call  meetings  of  the  people 
of  their  respective  towns,  and  to  urge  them  at  once  to  take  steps  to 
secure  the  necessary  seed  and  to  plant  quick-growing  crops  of  corn, 
camotes  (i.  e.,  sweet  potatoes),  rice,  and  other  food  plants.  Each 
president  was  authorized  temporarily  to  allot  public  land  within  his 
town  to  citizens  of  the  town  for  the  purpose  of  planting  seed  and  of 
reaping  the  crop.  The  act  further  authorized  provincial  boards  to  buy 
seed  and  sell  it  where  needed  to  the  towns,  to  be  sold  again  to  the 
inhabitants,  with  authority  to  furnish  the  indigent  with  seed  and  to 
collect  the  equivalent  of  the  same  from  the  crop.  Monthly  reports  of 
their  proceedings  under  the  act  were  required  from  the  municipal 
presidents  and  provincial  governors.  The  civil  governor  was  required 
to  bring  the  terms  of  the  act  to  the  attention  of  the  people  b}^  procla- 
mation. 

The  proclamation  was  issued  in  accordance  with  the  act,  and  reports 
from  the  various  provinces  justify  the  statement  that  the  act  stim- 
ulated the  planting  of  many  different  kinds  of  food-making  plants  and 
prevented  much  of  the  suffering  which  would  have  been  caused  by  the 
short  food  supply.  In  parts  of  the  islands  the  municipal  councils 
exceeded  their  authority  and  made  the  failure  to  plant  crops  criminal 
offenses,  and  punished  persons  by  imprisonment  in  jail  for  failure  to 
attend  to  the  provisions  of  this  act  and  to  raise  the  crops  as  the  coun- 
cils thought  they  ought.  Executive  action  had  to  be  taken  to  prevent 
such  abuses.  From  the  1st  of  January  until  late  in  August  there  was 
a  drought  in  the  islands  of  unusual  length,  which  interfered  with  the 
successful  reaping  of  many  of  the  crops  planted  under  Act  No.  517; 
and  with  the  drought  a  pest  of  locusts  came  that  bade  fair  to  consume 
every  part  of  the  food  supply  that  grew  above  the  ground.  Locusts 
have  visited  some  provinces  in  the  islands  for  two  or  three  years  past, 
but  during  this  year  every  province  seems  to  have  been  afflicted  with 
them.  In  a  normal  state  of  agriculture,  with  the  acreage  of  planted 
crops  what  it  was  before  1896,  every  hacendero  or  farmer,  the 
moment  that  locusts  appeared,  had  the  strongest  motive  for  uniting 
all  the  people  in  the  suppression  of  the  pest.  If  locusts  are  promptly 
attacked,  driven  into  ditches  and  burned  before  their  wings  are  grown, 
and  when  they  are  what  are  called  "loctoncs"  or  hoppers,  they  can 
be  destroyed  and  the  losses  which  they  cause  as  flying  insects  may 
be  avoided.  The  difficulty  during  the  past  year  has  been  that  com- 
paratively so  little  of  the  land  has  been  cultivated  that  the  motive  for 
the  influential  hacendero  and  landowner  to  make  great  efforts  to 
kill  the  locusts  has  not  existed.  The  Conunission  became  convinced 
from  oflicial  reports  received  that  some  radical  action  must  be  taken 
23181—04 31 


47s  KF.roUTS    OK    TlIM    CIVIL    (;<  )V  KUNMKN'L' 

to  rouse  (li(^  people  to  suppress  the  locusts.  Accordingly  Act  No,  817, 
doi'laring  the  presence  of  locusts  to  ])c  a  public  emergency  and  making 
prt)visi()n  for  their  suppression,  was  enacted  on  the  8d  of  August,  VM)S. 
By  this  act  a  board  for  the  suppression  of  locusts  was  provided  in  each 
province,  to  consist  of  the  three  members  of  the  provincial  board  and 
three  agriculturalists.  In  each  province  in  which  locusts  appeared, 
every  able-))odied  inhabitant,  with  a  few  necessary  exceptions,  was 
declared  liable  for  service  under  regulations  of  the  board,  which  might 
require  the  inhabitants  to  assemble  "en  masse"  to  suppress  the  pest,  or 
might  make  it  the  duty  of  each  inhabitant  to  deliver  to  an  agent  of  the 
board  a  certain  numl)er  of  bushels  of  locusts  a  diij.  The  municipal  offi- 
cers were  made  subject  to  the  orders  of  the  board,  and  they  were  required 
at  once  to  give  notice  of  the  presence  of  locusts  in  any  barrio  of  a 
town  to  the  agents  of  the  board.  The  board  was  authorized  to  dis- 
tribute rice  to  those  engaged  in  the  work  of  suppressing  locusts  who 
were  unable  to  support  themselves  during  their  service,  and  this  rice, 
it  was  provided,  the  civil  governor  should  purchase  at  the  expense  of 
the  Congressional  relief  fund  and  distribute  to  the  various  provinces. 
Any  person  failing  to  comply  with  lawful  regulations  -of  the  board 
was  made  subject  to  prosecution  and  a  line  of  $10  or  ten  days  imprison- 
ment, or  both.  The  board  was  also  authorized  to  procure  from  the  civil 
governor  sheets  of  galvanized  iron  to  be  distributed  to  each  town,  and 
to  be  used  as  a  means  of  obstructing  the  escape  of  locusts  and  of 
driving  them  into  prepared  ditches.  These  sheets  of  iron  were  also 
to  be  paid  for  from  the  Congressional  relief  fund. 

Money  has  been  drawn  from  the  Congressional  relief  fund  by  vir- 
tue of  Acts  Nos.  738,  786,  and  797,  and  under  resolutions  of  the  Com- 
mission adopted  in  accordance  with  the  provisions  of  the  last  act. 
The  three  acts  and  the  resolutions  passed  are  appended  to  this  report 
under  Exhibit  A.  It  was  thought  wise  to  buy  rice  and  distribute  it 
in  the  provinces  to  be  used  not  only  to  pay  for  the  destruction  of 
locusts,  but  also  for  the  payment  of  lal)or  on  the  roads,  for  the  labor 
in  the  erection  of  barrio  schoolhouses  and  other  public  Avorks,  the 
construction  of  which  in  districts  where  the  food  supply  was  short 
would  furnish  means  of  living  to  the  poor  and  indigent.  Rice  for 
this  purpose  proved  generally  to  be  better  than  money,  because  money 
earned  and  paid  w^as  too  often  lost  in  gambling,  the  prevailing  vice 
among  the  Filipino  people,  whether  rich  or  poor.  Rice  generally 
reached  the  mouths  it  was  intended  for. 

We  have  purchased  under  Acts  786  and  797  from  Congressional 
relief  funds,  rice  amounting  to  16,552,487  pounds,  costing  $732,790.13 
Mexican  currency,  and  8,455,524  pounds,  costing  $348,931.93  Philip- 
pine currency.  Of  this  19,994,565  pounds  have  been  distributed  down 
to  November  30  of  this  year,  and  we  have  on  hand  5,013,446  pounds. 
Probably  no  more  than  this  will  be  needed  for  the  present  year. 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903. 


479 


The  following  table  shows  the  provinces  to  which  the  rice  has  been 
distributed  and  the  purposes  to  which  it  has  been  devoted: 


Province. 

Piculs  (137i 

pounds  to 

picul). 

Days  wages 

in  driving 

and  de- 

.strojing 

locusts. 

Repair- 
ing and 

con- 
structing 
roads. 

For  sale 
to  pre- 
vent ex- 
orbitant 
prices. 

Barrio 
school - 
houses. 

Iron  for 
locust-s 
(sheets) . 

Netting 
for  catch- 
ing 
locusts. 

Abra 

2,000 
5,000 
4,500 
1,250 

1,000 
500 

1,000 

400 

Albay 

4,500 

3,000 

500 

Ambos  Camarines.. . 

1,500 

Antique 

Bataan 

750 

500 
100 
300 

12,000 

riOO 

10,000 

4,000 

3,000 

600 

8,000 

5,000 

Benguet 

2,000 

500 
100 
500 
100 
1,000 

1,000 

5, 000 
6,000 
5,000 
9,700 
2,000 
12,500 

820 
2,000 

103 
1,000 
5,000 
3,500 

100- 
8,000 
8,500 
4,500 

i,666 

1,000 

3,000 

.    5,000 

5, 000 

6,200 

1,000 

Cebu         

1,000 
2,000 
2,500 
820 
1,000 
51 

2,500 

500 

1,500 

100 

500 

Iloilo                              .     . 

10,000 

La  Laguna 

1,000 

62 
1,000 
3,000 
3,000 
100 
4,000 

2,000 

500 

500 

4,000 
4,000 
2, 000 

1,600 
500 

1,000 
500 
600 
100 

3,000 

1,500 

2,500 

5,000 

100 

400 

2,000 

2, 000 

4,000 

34 

4,000 

8, 050 

5, 400 

1,000 
100 

4,000 

Rizal 

400 

2,000 

2,000 
4,000 

34 

1,000 

3,000 

400 

Tarlac 

3,000 
4,600 
2,000 

a  100 

4.50 
3,000 

450 
100 

Total 

139,957 

33,055 

82,252 

7,100 

16,950 

11, 450 

1,000 

a  Provincial  buildings. 

The  onh"  gratuitous  distribution  of  rice  permitted  was  as  follows: 

Piculs. 

Mariqiiiiia  fire  sufferers  182 

Indij^ent  poor,  town  of  Capiz,  Panay 25 

Relief  inhabitants  of  Canaman,  Magarao,  Bombon,  Quipajo,  Ambos  Camarines 
(50  piculs  each  town) 200 

Total 407 

Under  date  of  September  18,  1903,  provincial  board  of  Occidental  Negros  was 
authorized  to  furnish  2  cavanes  of  rice  per  week  to  lepers  at  Macalol,  Bacolod.  (To 
be  taken  from  rice  shipped  under  Act  786.) 

It  was  supposed  for  some  time  to  be  possible  to  destroy  the  locusts 
by  infecting  some  of  them  with  a  disease  from  a  poisonous  fungus 
and  allowing  the  infected  ones  to  escape  to  their  fellows  and  thus 
spread  destruction  through  all  of  them.  In  exceptional  instances 
this  remedy  was  effective,  but  during  the  dry  season  it  failed  utterly, 
and  it  is  so  likeh'  to  fail  at  all  times  that  it  has  not  been  deemed  wise 
to  devote  any  furthiM*  attention  to  it.  The;  destruction  1)}'  locusts  dur- 
ing the  months  of  April,  May,  and  June  and  earlier,  was  very  great, 


480  KKI'OK'PS    OK    TIIK    CIVIL    OOVKRNMKNT 

but  it  is  tliou^lit  that  the  stops  since  taken  for  the  protection  of  the 
crops  which  were  seeded  in  July  and  Auo-ust  have  l)een  ([uite  etfectivc 
to  prevent  serious  loss.  Tiie  otl'er  of  rice  for  work  in  suppressing  the 
locusts,  with  the  provisions  of  the  law  referred  to,  summoned  the 
entire  population  — men,  Avomen  and  children — and  the  result  justifies 
the  plan. 

The  road  Avork  done  at  the  expense  of  the  relief  fund  has  ])ccn 
chiefly  that  of  repairing  former  roads  under  the  control  and  direction 
of  the  provincial  supervisors.  The  consulting  engineer  has  been  busy 
preparing  plans  and  specifications  for  the  construction  of  what  may 
well  be  called  ''insular''  roads,  because  they  will  lead  from  one  prov- 
ince to  another  or  from  one  side  of  an  important  island  to  another, 
and  are  too  expensive  to  be  built  under  the  auspices  of  the  provincial 
government. 

Rice  has  also  been  used  in  Ilocos  Norte,  in  Tayabas,  and  in  Cavite, 
and  possibly  it  will  be  used  in  other  provinces  for  work  done  in  the 
erection  of  barrio  schoolhouses.  Almost  the  entire  cost  of  these  school- 
houses  is  in  laljor,  and  the  use  of  rice  therefore,  for  the  construction 
of  such  houses,  is  very  convenient.  Under  the  laws  and  executive 
orders  safeguarding  the  expenditure  of  the  rice,  set  forth  in  the  appen- 
dix and  already  referred  to,  the  objects,  places  of  expenditure,  the 
amount  of  work  done,  the  price  at  which  it  was  done,  will  all  be  shown 
by  accounts  filed  by  svipervisors  of  the  provinces  with  the  auditor,  but 
it  is  impossible  at  the  present  time  to  submit  such  accounts,  for  the 
reason  that  sufficient  time  has  not  elapsed  for  their  submission  and 
audit. 

The  stimulus  given  to  the  cultivation  of  the  ground  this  year  by  legis- 
lation and  the  efforts  of  the  authorities  has  led  to  what  is  probably  a 
greater  acreage  for  the  planting  of  rice  and  other  food  supplies  than 
any  year  since  1889.  Of  course  much  difficulty  has  been  found  in  the 
absence  of  draft  cattle,  but  the  pinch  of  hunger  and  the  instruction  of 
municipal  authorities  has  led  to  the  use  of  the  existing  carabao  by  many 
different  farmers  and  to  some  plowing  by  hand.  The  prospect  is  that 
we  shall  have  a  better  rice  crop  in  nearly  all  the  provinces,  except,  pos- 
sibly, Batangas,  than  we  have  had  for  years.  It  was  at  first  thought 
that  all  the  crops  would  be  destroyed  by  the  continuance  of  the  drought, 
but  after  August  rain  fell  all  over  the  islands,  and  the  rice  which  has 
seemed  to  be  in  a  failing  condition  developed,  and  now  gives  prospect 
of  producing  a  fair  amount  of  grain. 

No  cases  of  actual  starvation  have  been  brought  to  the  notice  of  the 
Government.  In  the  provinces  of  Ambos  Caraarines,  Iloilo,  and 
Batangas  it  has  been  reported  that  there  was  much  suffering  from 
lack  of  food  and  this  was  doubtless  true,  but  the  people  have  always 
found  enough  camotc^s  or  tubers  and  other  food  roots  to  avoid  starva- 
tion.    Such  food  not  properly  cooked  is  indigestible  and  unhealthy, 


OF    THE    PHILIPPINE    ISLANDS,    li)00-1903.  481 

and  while  theri^  were  no  deaths  from  starvation  tliere  were  diseases 
incident  to  bad  and  insufhcient  food  which  carried  off  nian3%  Among- 
people  thus  badl}-  nourished,  cholera,  too,  found  many  victims. 

The  absence  of  draft  cattle  is  likely  to  produce  a  change  in  the 
amount  of  rice  production  in  these  islands  under  normal  conditions. 
In  a  number  of  provinces  hemp  is  being  planted.  The  hemp  crop 
does  not  need,  except  for  purposes  of  transportation,  the  carabao. 
The  hemp  culture  is  increasing  very  rapidly  in  Laguna,  in  Batangas, 
in  Cavite,  in  the  Camarines,  in  Union,  and  in  other  provinces  where 
rice  was  the  chief  product.  The  importation  of  rice  for  the  year  end- 
ing June  30,  1903,  exceeded  that  of  the  previous  year  by  about  three 
and  one-half  millions  of  dollars  gold,  and  reached  as  a  grand  total 
something  over  ten  millions  of  dolhxrs  gold.  It  is  hoped  that  no  such 
amount  of  rice  will  need  to  be  imported  next  year,  but  it  should  be 
said  that  if  the  culture  of  hemp,  copra,  sugar,  and  tobacco  pays  better, 
the  importation  of  some  rice  as  food  may  not  necessarily  indicate  a 
lack  of  prosperity  in  the  country. 

One  of  the  chief  objects  of  the  Congressional  relief  fund  was  the 
restocking  of  the  islands  with  draft  animals.  By  Act  No.  738  the  sum 
of  $100,000  was  appropriated  for  the  preliminary  expenses  in  the  pur- 
chase of  draft  cattle.  The  acting  insular  purchasing  agent  and  a  cattle 
expert,  taken  from  the  agricultural  bureau,  were  sent  to  every  coun- 
try in  the  Orient  whence  exportation  to  the  Philippines  was  possible. 
The  purchasing  agent  advertised  in  Manila  for  bids  at  which  5,000 
carabao,  immunized  from  rinderpest,  would  be  delivered  in  Manila, 
but  the  uncertainty  as  to  the  percentage  of  cattle  that  would  survive 
the  process  of  immunization  prevented  our  securing  a  contract  from 
responsible  cattle  importers  in  Manila.  The  process  of  temporary 
immunization  consists  in  injecting  into  the  circulation  of  the  animal  a 
serum  which  will  render  the  animal  immune  from  rinderpest  some  four 
or  five  months.  Permanent  immunization  is  only  effected  by  a  simul- 
taneous injection  of  the  serum  and  virulent  rinderpestic  blood  drawn 
from  a  victim  of  the  disease.  The  inoculators  of  the  board  of  health 
of  the  islands  have  inoculated  many  carabao  in  provinces  revisited  by 
rinderpest,  to  prevent  a  spread  of  the  disease,  and  the  loss  has  not 
averaged  tliree  per  cent  of  the  animals  inoculated.  It  was  hoped  that 
the  same  result  might  attend  inoculation  of  animals  purchased  in  China 
and  subjected  to  inoculation  at  Shanghai.  Accordingly,  the  acting 
insular  purchasing  agent  made  a  contract  with  the  lirm  of  Keylock  & 
Pratt,  of  that  city,  for  the  delivery  in  Manila  of  10,000  immunized 
carabao  at  the  price  of  88  Mexican  pesos  a  head;  an  agent  of  the  insu- 
lar govcnnnent  to  examine  and  reject  cara])ao  before  inoculation  at 
Shanghai  and  to  supervise  the  process,  and  the  insular  government  to 
share  tlie  risk  of  loss  by  paying  10  pesos  for  each  head  dying  on 
account  of  it.     The  percentage  of  loss  from  the  treatment  becan^e  so 


4S2  REPORTS    OF    THE    CIVIL    OOVERNMENT 

gvc'dt  at  Shanghai  that  both  parties  to  the  contnict  wciv,  ghid  to  modify 
its  tormts  by  a  new  contract  under  which  KeyU)ck  &  Pnitt  agreed  to 
deliver  10,000  carabao  of  certain  weight  and  age  in  Manihi  at  70 
Mexican  pesos  a  head,  temporarily  immunized  in  China  and  subject  to 
inspection  at  Manila.  Thus  far  it  can  not  be  said  that  the  contract 
has  been  successful.  The  truth  i«  that  the  imported  animals  seem  to 
be  pecidiarly  susceptible  to  numy  other  diseases  than  rinderpest  after 
they  arc  brought  here.  We  have  lost  nearly  an  entire  herd  of  200 
from  hemorrhagic  septicaemia,  quite  a  number  from  surra,  and  others 
from  a  union  of  rinderpest  and  foot-and-mouth  disease.  In  addition 
to  this,  we  recei\^ed  word  through  the  State  Department  at  Washing- 
ton that  the  Chinese  Government  would  forbid  the  exportation  of 
more  than  1,000  animals.  Our  latest  information,  however,  is  that 
the  Chinese  authorities  will  not  interfere  with  the  fulfillment  of  the 
present  contract.     The  following  table  shows  the  carabao  transactions: 

Statement  November  20,  190S. 

Shanghai  cur- 
rency. 

Total  number  purchased  under  old  contract 049,  at  $75. .     |48, 675.  00 

Total  number  dying  at  Shanghai  after  inoculation 435,  at    40 . .       17, 400.  00 

Total  number  purchased  under  new  contract 721,  at    79. .       56, 979.  00 


Total 1, 805 $123, 054.  00 

or  Philippine  currency $118,  805.  45 

Total  number  accepted  alive 1, 370 

Dispositions: 

Sale  by  purchasing  agent 91 

23,  at  $100 $2,  300 

68,  at      70 7, 060 


$9, 360 
Transfer  to  provinces — 

Rizal 105 

Bataan 230 

Laguna 51 

Occidental  Negros 20 

Zamboanga 33 

On  hand  in  Manila ". .  406 

Missing 3 

Died  since  acceptance 429 

1,370 

The  Commisson  passed  Act  828  (a  copy  of  which  is  appended  under 
Exhibit  A)  for  the  purpose  of  prescribing  a  method  of  disposing  of 
the  carabao  purchased  in  the  provinces  where  they  were  most  needed. 
The  insular  purchasing  agent  is  authorized  ])y  the  act  to  send  carabao 
purchased  to  any  province  the  provincial  board  of  which  shall  request 
it,  upon  approval  of  the  Commission.  Sales  are  conducted  under  the 
auspices  of  the  provincial  board.  The  minimum  price  at  cash  sales  is 
fixed  at  70  Philippine  pesos.  The  privilege  of  choice  is  to  ])e  put  up 
for  public  bidding.     Sales  partly  on  time  are  allowed,  but  preference 


OF    THE    PHILIPriNE    ISLANDS,    1900-1903.  483 

is  given  in  choice  to  those  buying  wholl}"  for  cash.  The  terms  of 
partly  credit  sales  are  93  pesos — 31  pesos  cash  and  the  l)alance  in  one 
and  two  3"ears  secured  b}^  chattel  mortgage  on  the  animal.  It  has  also 
been  the  custom  of  the  Cominission  to  authorize  the  purchasing  agent 
to  sell  in  small  numbers  carabao  at  100  Philippine  pesos  a  head  for  cash, 
with  the  privilege  of  choice  to  any  bona  tide  liacendi'W  or  farmei 
coming  to  Manila  to  buy.  Of  course  the  prices  lixed  wnll  not  pay  the 
cost  of  the  carabao,  but  it  was  not  the  purpose  of  the  Commission  to 
charge  full  cost.  The  Commission  understands  the  intention  of  Con- 
gress to  be  to  relieve  the  scarcity  of  cattle  by  furnishing  them  to  farmers 
at  a  low  price. 

If  we  assume  that  the  carabao  shown  to  be  on  hand  and  sold  at  the 
time  of  the  preparation  of  the  statement  given  above  will  continue  in 
life,  they  have  cost  the  insular  government  126.05  Philippine  pesos  a 
head,  without  counting  forage  and  other  expenses  of  maintenance, 
which  would  perhaps  increase  the  expense  to  150  pesos.  This  is  not 
encouraging,  but  experience  will  doubtless  enable  us  to  reduce  the  cost. 
The  attitude  of  the  Chinese  Government  makes  it  improbable  that  we 
can  procure  from  China  more  than  the  10,000  already  contracted  for 
there.  It  seems  likely,  though  experiment  will  only  make  it  certain, 
that  it  would  be  wiser  for  us  to  import  the  so-called  Indian  bulls  and 
cows  used  now  in  the  Straits  Settlements  in  Java  and  in  India  for  rice 
culture,  because,  though  not  so  strong,  they  are  hardier  than  the  carabao 
and  quite  as  good  workers.  I  append  hereto  a  statement  as  to  carabao 
transactions  to  November  20,  1903,  by  the  insular  purchasing  agent, 
as  Exhibit  C. 

I  also  append  a  statement  from  the  auditor  showing  the  actual 
expenditures  from  the  Congressional  relief  fund  as  Exhibit  D.  From 
this  statement  it  appears  that  of  the  total  sum  of  5*^6,000,000,  appro- 
priated by  Congress,  the  sum  of  ^2,691, 000  has  been  appropriated  or 
allotted  by  the  Philippine  Commission  for  the  purposes  of  the  act,  and 
that  net  withdrawals  from  such  allotments  have  been  made  amounting  to 
^1,312,162.42,  leaving  a  balance  to  the  credit  of  the  allotments  amount- 
ing to  ^1,378,837.5S.  There  was  in  the  treasury  on  Deceml^er  1  to 
the  credit  of  the  Congressional  relief  fund  a  balance  unappropriated 
of  ^3,309,000,  and  a  balance  of  the  original  fund  in  the  treasury, 
allotted  and  unallotted,  amounting  to  ^4,687,837.58,  or  $2,343,918.79. 

CONDITIONS   AS   TO   TRANQUILLITY. 

The  conditions  with  respect  to  tranquillity  in  the  islands  have  greatly 
improved  during  the  last  year,  and  1  think  it  fair  to  say  that  at  no 
time  in  the  history  of  the  islands  has  there  l)cen  less  ladronisni  than 
as  when  this  is  written,  December  10,  1903.  At  the  time  of  writing 
my  last  report  the  provinces  of  Rizal  and  Bulacan,  in  the  immediate 
neighborhood  of  Manila,  were  disturbed  by  marauding  bauds,  which 


484  KKroKTS    OF    TIIK    OIVIL    tlOVKKNMKNT 

are  said  to  have  derived  considerable  support  from  persons  in  Manila. 
They  were  under  the  eonmiand  of  one  San  Miguel,  who  professed  to 
be  the  appointee  of  a  junta  representing  the  Filipino  Republic.  He 
drew  his  forces  from  the  purlieus  of  Manila  and  from  well-known 
ladrones,  thieves,  and  other  criminals  to  be  found  in  the  towns  of  the 
two  provinces.  So  active  did  the  marauders  become  that  the  forces 
of  the  constabulary  of  the  two  provinces  were  not  enough  to  guard 
the  towns  against  their  attacks  and  at  the  same  time  to  chase  the  rob- 
bers to  their  hiding  places.  Accordingly,  use  was  made  of  the  scouts 
under  the  constabulary  act,  and  this  with  very  good  effect.  In  two 
engagements,  one  with  the  constabulary  and  the  other  with  a  company 
of  scouts,  the  ladrones  suffered  most  severely,  losing  in  the  latter  of 
the  two  engagements  more  than  60  men  by  death,  including  their 
leader,  San  Miguel.  Shortly  before  the  death  of  San  Miguel,  Apoli- 
nario  Mabini  landed  in  these  islands  from  Guam,  after  taking  the  oath 
of  allegiance.  Upon  his  landing  a  note  from  San  Miguel  was  handed 
him,  asking  for  advice.  To  this  note  Mabini  responded  by  writing  on 
his  visiting  card  that  he  had  not  been  long  enough  in  the  islands  to 
answer,  but  that  he  would  advise  him  later.  The  card  of  Mabini  was 
found  on  the  dead  bod}^  of  San  Miguel  and  was  delivered  to  me  by  the 
chief  of  the  constabulary.  1  sent  the  card  to  Mabini  by  the  hand  of 
Pedro  A.  Paterno,  expressing  surprise  that  so  soon  after  taking  the 
oath  he  should  open  communication  with  men  in  arms  against  the 
Government.  He  replied  by  sending  to  me  a  copy  of  a  letter  which 
he  had  sent  San  Miguel,  but  which  did  not  reach  him  before  his  death. 
The  letter  was  as  follows: 

Manila,  March  27,  1903. 

Sir:  Since  you  ask  me  my  opinion  concerning  your  action,  I  will  clearly  inform 
you  in  accordance  with  my  method  of  thinking. 

I  do  not  consider  that  the  liberty  enjoyed  to-day  in  this  Archipelago  can  be  fol- 
lowed by  independence  through  means  of  arms  at  the  present  time.  The  people  do 
not  move  because  they  have  no  arms,  and  even  if  they  had  them  they  would  have 
nothing  to  eat.  Although  you  might  find  another  nation  that  would  like  to  furnish 
arms  and  supplies,  this  nation  also  would  like  to  annex  this  territory,  and  if  this 
8hould  happen  our  misfortune  would  be  still  greater. 

If  we  should  proceed  gradually,  as,  in  fact,  you  are  doing,  the  war  would  continue 
and  possibly  our  nation  never  would  enjoy  prosperity,  because  the  war  would  finally 
turn  into  a  poisonous  disease  which  would  greatly  increase  our  weakness.  Under- 
stand well  that  we  are  now  killing  each  other. 

It  seems  to  me  that  at  the  present  time  we  should  endeavor  to  secure  independence 
through  the  i)aths  of  peace.  Let  us  cease  that  the  people  may  rest,  that  it  may  work 
to  recover  from  its  recent  proprietary  losses.  Let  us  conform  to  the  opinion  of  the 
majority,  although  we  may  recognize  that  by  this  method  we  do  not  obtain  our 
desires. 

This  is,  I  believe,  the  surest  and  most  fit  method  in  obtaining  the  welfare  of  all. 

Let  us  deliberate  and  hold  an  assembly  to  treat  of  these  matters.  In  case  you  are 
in  conformity  with  this  and  return  to  peace,  determine  upon  the  necessary  condi- 
tions that  you  should  ask  in  order  to  save  yourselves  from  any  whatever  vexations, 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  485 

and  if  you  think  that  I  should  transmit  your  petition  to  the  constituted  authorities 
I  am  disposed  to  comply  at  any  time. 

There  are  those  who  say  tliat  your  procedure  is  the  cause  of  many  abuses  and 
methods  which  are  unfavorable  to  the  country,  but  I  believe  that  the  remedy  for 
this,  if  it  were  true,  is  not  comparable  to  the  great  poverty  which  would  be  born  of 
of  a  war  apparently  interminable.  I  believe  that  as  long  as  the  Filipinos  do  not 
endeavor  to  liberate  themselves  from  tlieir  bonds  the  period  of  their  liberty  will  not 
arrive. 

Excuse  me  for  telling  you  this.  If,  perchance,  you  are  not  in  accord  with  my 
opinion,  this  will  not,  as  far  as  I  am  concerned,  be  a  motive  for  destroying  our  for- 
mer friendship  and  companionship. 

Order  your  humble  servant  whenever  you  see  fit. 


Ap.  Mabini. 


General  Luciano  San  Miguel. 


Subsequently  to  this,  Mabini  addressed  to  me  a  letter  in  terms 
following: 

Manila,  P.  I.,  April  9,  1908. 

Honorable  Sir:  A  few  days  after  my  arrival  at  this  capital,  I  received  a  message 
from  the  late  San  Miguel,  sending  greetings  of  welcome,  and  requesting  my  opinion 
in  regard  to  his  attitude.  In  reply  I  sent  him  a  card,  thanking  him  for  his  welcome 
and  informing  him  that  I  had  not  as  yet  formed  any  opinion,  since  I  had  only  just 
arrived  and  did  not  know  the  conditions. 

Weeks  after,  when  I  had  acquired  some  knowledge  of  the  true  state  of  affairs,  I 
wrote  a  letter,  in  which  I  endeavored  to  j^rove  that  armed  contention  is  ruinous  to 
the  country  and  that  the  present  condition  of  things  permits  only  of  a  pacific  con- 
tention for  the  political  ideals  that  one  might  strive  after.  I  prepared  this  letter 
against  the  time  when  San  Miguel  should  ask  me  for  the  second  time  for  my  opinion. 
On  the  morning  of  the  27th  of  March  last  a  messenger  came  for  the  said  opinion, 
and  I  gave  him  the  letter.  But  on  the  following  day  the  messenger  came  back  to 
inform  me  that  the  letter  had  not  reached  the  hands  of  San  Miguel,  who  had  been 
killed,  but  had  been  delivered  to  an  officer  of  his  band  for  him  to  deliver  to  the  sec- 
ond in  command.  Later  I  turned  over  the  rough  copy  of  the  letter  to  Mr.  Pedro  A. 
Paterno,  in  order  that  he  might  inform  you  in  regard  to  the  contents. 

I  have  just  been  informed  that  the  letter  is  in  the  possession  of  Faustino  Gui- 
llermo,  chief  of  a  band,  who,  with  his  people,  is  disposed,  so  they  say,  to  follow  the 
counsels  given  in  the  said  letter.  But  there  exists  another  and  larger  band,  under 
the  command  of  Alejandro  Santiago  and  Apolonio  Samson;  this  Alejandro  Santiago 
is,  according  to  reports,  the  successor  of  San  Miguel.  These  chieftains  have  not 
received  the  letter  yet,  for  the  reason  that  the  frequent  expeditions  and  patrols  of 
the  constabulary  render  communication  very  difficult;  no  one  dares  to  search  for 
them,  for  fear  of  falling  into  the  hands  of  the  officers  of  public  order.  They  tell  me 
that  it  is  necessary  that  the  jiersecution  should  not  be  so  active,  if  only  for  a  few 
days,  for  them  to  secure  an  opportunity  to  hold  intercourse;  or  that  a  safe  conduct 
should  be  furnished  them,  so  that  they  can  send  a  person  to  look  for  them  and 
deliver  the  letter. 

I  must  confess  frankly  that  the  late  San  Miguel  was  an  old  acquaintance  and  even 
friend  of  mine;  but  the  chiefs  above  mentioned  I  do  not  know  personally,  and  I  am 
not  acquainted  with  their  antecedents. 

With  these  data,  I  await  your  determination,  signing  myself  your  humble  and 
obedient  servant. 

Mabini. 

Mj-.  William  H.  Taft, 

Civil  Oovernor  of  the  J'lnlijtidneH. 


480  REPORTS    OF    TTIK    CTVTL    GOVERNMENT 

To  which  I  iiKuli^  tho  I'ollowino-  ivply,  whicli  endrd  (ho  corrospond- 

enco: 

Baguio,  BENGtucT,  April  18,  1903. 
My  Pear  Sir:  I  have  to  acknowledge  receipt  of  yonr  letter  of  Ai)ril  9,  1903,  and 
to  apoloiiize  for  my  delay  in  answering  tho  Hame.     The  letter  was  delivered  to  me  just 
before  I  left  Manila  for  Benguet,  and  I  had  to  delay  answer  nntil  reacliing  here,  and 
until  the  letter  could  be  translated.     I  have  also  read  the  copy  of  your  letter  to  San 
Miguel  which  you  sent  me  by  Senor  Paterno.     I  thank  you  much  for  interesting 
yourself  in  the  maintenance  of  law  and  order  in  tlie  islands  and  in  presenting  as 
cogently  as  you  do  the  necessity  for  peace  and  tranquillity.     If  I  have  understood 
your  letter  to  me  and  its  request,  you  have  in  mind  a  surrender  of  the  persons  to 
whom  you  have  directed  your  letter,  on  condition  of  their  receiving  immunity  from 
ordinary  prosecutions  under  the  law.     Could  I  be  assured  that  this  leniency  would 
secure  quiet  and  freedom  from  robbery  and  invasion  to  the  good  people  of  Bulacan, 
Rizal,  and  Cavite,  whose  welfare  we  both  have  at  heart,  I  should  be  glad  again  to 
offer  immunity  to  those  to  whom  you  desire  your  letter  to  be  conveyed;  but  the 
difficulty  is,  my  dear  senor,  that  purely  out  of  consideration  for  the  welfare  of  the 
people  of  the  three  provinces,   I  ran  the  risk  of  allowing  many  criminals  to  go 
unwhipt  of  justice  and  did  authorize  an  offer  of  imnumity  to  these  very  persons 
should  they  come  in  and  surrender  all  their  arms— an  offer  which  remained  open  for 
some  six  weeks  from  October  1  to  November  15  of  last  year.     Reports  came  from 
time  to  time  that  the  offer  was  to  be  accepted,  but  finally  nothing  was  done.     There 
was  for  a  time  suspension  of  the  police  expeditions  in  order  to  permit  a  general 
surrender.     The  only  effect  of  this  was  to  exaggerate  in  the  eyes  of  the  poor  people 
of  the  towns  of  Rizal  and  Bulacan  the  prestige  of  those  to  whom  the  offers  of 
immunity  were  made,  enabling  them  the  better  to  terrorize  such  people,  and  to  give 
to  the  individuals  in  arms  an  excessive  idea  of  their  own  importance.     The  negotia- 
tion fell  through  chiefly  because  the  men  who  made  up  the  bands  of  these  various 
individuals  belonged  to  the  criminal  classes,  were  confirmed  ladrones  and  escaped 
fugitives  from  justice,  whom  their  leaders,  even  if  they  desired  to  do  so,  could  not 
control  to  the  extent  of  compelling  them  to  give  up  their  arms  which  they  needed 
for  their  life's  profession.     They  were  all  bent  on  a  lawless  life,  were  outlaws  and 
bandits,  and  would  continue  to  be  so  whatever  the  government  at  Manila.     True 
they  received  reenforcement  from  time  to  time  from  the  idle  and  worthless  of 
the  neighboring  towns  and  doubtless  had  assistance  from  some  of  the  municipal  offi- 
cials, who,  acting  from  motives  of  fear  or  gain,  reaped  a  benefit  from  their  complic- 
ity and  assistance.     After  this  experience,  and  after  a  conference  with  the  members 
of  the  Commission,  I  reached  the  definite  conclusion  that  patience  with  them  had 
ceased  to  be  a  virtue,  and  that  the  worst  possible  course  to  pursue  with  them,  having 
regard  to  the  welfare  of  the  Filipino  people  of  the  three  provinces,  was  to  temporize, 
negotiate,  or  offer  immunity  to  them.     Most  of  them  were  criminals  and  had  been  so 
since  the  Spanish  times,  and  it  could  not  reasonably  be  expected  that  they  would, 
even  if  they  surrendered,  return  to  paths  of  peace.     San  Miguel  was  selected  as 
nominal  leader  and  figurehead  because  the  real  leaders  were  jealous  of  each  other. 
Santiago,  a  very  obscure  person,  with  facility  only  for  intrigue,  has  been  selected  on 
the  same  principle.     Apollonio  Samson,  Faustino  Guillermo,  Julian  Santos  (now 
under  sentence  of  death),  Manilang  (now  dead),  Felizardo,  Montillon,  and  Contre- 
ras  were  the  real  leaders  and  they  always  have  been  robbers,  kidnapers,  and  cara- 
bao  thieves,  and  Guillermo,  Santos,  and  Manilang,  and  possibly  some  of  the  others, 
were  fugitives  from  justice  under  charge  of  murder.     They  are  unworthy  of  either 
the  encouragement  or  sympathy  of  any  Filipino  of  honor  and  integrity,  no  matter 
what  his  views  as  to  the  present  civil  government,  or  the  independence  of  the 
islands.     It  is  difficult  for  those  who  are  sincerely  irreconcilable  not  to  sympatliize 
with  any  disturbance  involving  attacks  upon  the  peace  and  order  of  the  community, 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  487 

because  they  can  hardly  repress  the  hope  tliat  such  disturbaniT,  whatever  the  motive, 
may  embarra>ss  the  present  government  and  ultimately  germinate  into  a  new  insur- 
rection. In  the  blindness  of  their  zeal  they  are  willing  to  sacritice  their  own  people — 
for  it  is  only  their  own  people  who  suffer  by  such  outlawry— to  a  vague  hope  that  out 
of  pure  ladronism,  murder,  and  robbery  may  grow  a  successful  revolution  based  on 
patriotic  sentiment.  Those  whose  duty  it  is,  however,  to  keep  informed  as  to  the 
character  and  nature  of  these  persons  who  keep  up  such  disturbances  know  that 
while  these  persons  may  receive  encouragement  and  even  material  assistance  from 
irreconcilable  persons  of  respectability,  they  are  essentially  only  robber  bands, 
thieves,  murderers,  and  kidnapers  for  ransom,  determined  to  live  on  their  neigh- 
bors and  willing  to  sacrifice  any  number  of  Filipinos  to  the  enjoyment  of  an  outlaw 
life.  They  masquerade  at  times  as  "revolucionarios"  in  order  to  win  the  assistance 
just  mentioned,  but  they  are  nothing  but  ladrones  and  should  be  punished  only  as 
violators  of  the  law.  Were  there  established  in  these  islands  a  self-respecting  and 
responsible  independent  Filipino  government,  almost  its  first  duty  would  be  the 
suppression  and  punishment  of  exactly  this  class  of  persons,  who  in  their  hearts 
recognize  no  law  and  wish  no  condition  of  affairs  save  that  of  violence  and  rapine, 
for  in  no  other  can  they  acquire  a  livelihood,  or  attain  the  position  of  prominence  or 
influence  which  their  vanity  demands. 

I  have  written,  my  dear  Senor,  to  you  with  great  frankness,  not  with  the  idea  of 
publishing  our  correspondence,  but  merely  to  show  you  my  exact  attitude  and  to 
explain  why  it  is  that  I  can  not  facilitate  communication  between  you  and  the  per- 
sons whom  you  name,  whose  past  history  you  say  you  do  not  know,  because  if  I 
were  to  do  so,  it  would  lend  support  to  the  view  that  I  am  willing  to  offer  immunity 
in  case  of  their  surrender. 

I  have  the  honor  to  be,  with  sentiments  of  very  great  respect. 
Very  sincerely,  yours, 

Wm.  H.  Taft,  Civil  Governor. 

Serior  Don  A.  Mabini, 

Manila,  P.  I. 

Within  a  few  weeks  after  this  Mabini  died  of  cholera.  M}^  letter 
to  Mabini  states,  with  as  much  care  as  I  can  state  it,  the  character 
of  the  men  who  were  eng-aged  in  disturbing  the  peace  and  tran- 
quillitj^  of  Bulacan  and  Rizal  provinces  last  winter.  Subsequent  to 
the  defeats  in  the  field  a  secret  service  was  established,  in  the  two 
provinces  and  in  Manila,  which  gradually  obtained  evidence  against 
the  persons  who  had  been  part  of  the  ladrone  foi-ces.  Alejandro 
Santiago  and  Faustino  Guillermo  have  been  among  those  captured. 
All  the  persons  were  brought  to  trial,  and  now  most  of  them  are  in 
Bilibid,  either  under  sentences  for  long  terms  or  awaiting  execution. 
The  same  result  is  being  brought  about  in  Cavite,  where  conditions 
have  much  improved  since  last  year,  though  the  two  ladrone  chiefs, 
Monti  lion  and  Felizardo,  have  thus  far  avoided  capture.  The  prov- 
ince has  been  thoroughly  policed,  and  more  than  150  ladrones  have 
been  arrested  and  are  on  their  way  to  the  penitentiary.  Arms  are 
being  ])r()ught  in  every  day  and  the  govermnent  is  receiving  aid  from 
the  people  in  its  work. 

The  arrest,  trial,  and  punishment  of  certain  criminals  in  Surigao 
led  to  their  being  senten(;ed  for  long  terms.  This  rendered  the  pris- 
oners desperate,  and  in  their  desire  to  escape  they  connnunicated  with 


488  KEPORTS    OF    TTIK    (^IVTL    GOVERNMENT 

.sDiuc  (.H)ii federates  in  Ihr  noij^lihorliood  oi"  [ho  ])roviiK'o,  who  at  a  cor- 
tuin  time  oaiuc  inti)  town  to  assist  the  ])risoncrs.  'Pho  prisoners 
awaited  a  "ood  opportunity  while  the  constabulary  were  at  their 
meals,  seized  all  their  g"uns,  killed  the  American  Captain  Clark,  and 
with  the  only  ouns  in  the  town  of  Surio'ao  took  the  town,  except  the 
provincial  building.  This  was  occupied  by  the  treasurer,  Captain 
Kelly,  and  the  other  American  officials,  who  bravely  held  out  against 
the  lawless  band.  From  the  provincial  building  telegraphic  commu- 
nication was  had  by  the  besieged  with  Iligan,  the  nearest  military  sta- 
tion on  the  north  coast  of  Mindanao,  and  the  dispatch  was  forwarded 
to  Cebu  and  Manila.  A  small  force  of  15  or  20  men  started  by  a 
small  boat  at  once  from  Iligan  to  Surigao.  Colonel  Taylor,  the  assist- 
ant chief  of  constabulary,  was  reached  by  telephonic  message,  and  he, 
with  a  coast  guai'd  boat,  took  a  force  of  men  from  Leyte  to  Surigao, 
reaching  there  about  twelve  hours  after  the  detachment  of  soldiers. 
The  criminal  malcontents  had  deserted  the  town  before  Taylor  reached 
it.  In  view  of  the  remoteness  of  the  province  and  the  nearness  of  a 
military  post  thereto,  I  concluded  to  turn  the  province  over  to  the 
military,  and  the  general  commanding,  General  Lee,  at  once  visited 
Surigao  with  a  sufficient  force  to  restore  complete  confidence  in  our 
power  to  suppress  lawlessness.  In  a  few  weeks  all  the  criminals 
except  Concepcion,  the  leader,  were  captured,  and  all  the  guns  with 
the  exception  of  four  or  five  were  recovered.  It  is  possible  that  hafl 
prompt  steps  not  been  taken  the  trouble  might  have  spread,  but  as  it 
was  it  was  nothing  more  than  a  breaking  of  jail  by  a  lot  of  desperate 
prisoners  and  their  escape  with  the  arms  of  their  captors.  It  never 
took  on  the  aspect  of  an  uprising  of  the  population  or  an  insurrection. 
In  Misamis  the  taking  of  the  census,  in  which  the  enumeration  of 
cattle,  hogs,  chickens,  and  other  animals  was  required,  aroused  the 
suspicions  of  the  people  against  the  census  enumerators  because  they 
thought  that  these  statistics  were  being  taken  as  a  basis  for  taxation, 
and  in  the  island  of  Camiguin,  a  part  of  Misamis,  there  was  a  rising 
among  the  people,  which  was  quickly  suppressed,  however,  by  one  of 
the  scout  companies.  For  the  same  reasons  which  obtained  in  the  case 
of  Surigao,  I  requested  the  aid  of  the  military  commander  in  Misamis. 
The  scouts  and  the  constabulary  worked  together  under  the  military 
commander  in  Misamis  as  in  Surigao,  and  subsequently  all  the  lawless 
elements  were  captured  or  killed  and  the  living  are  now  in  Bilibid. 
Both  the  provinces  of  Misamis  and  Surigao  are  entirely  quiet,  and  the 
people  are  pursuing  their  usual  vocations  without  disturbance.  At 
one  time  during  the  winter  there  was  a  disturbance  in  the  island  of 
Cebu.  The  pulajanes,  who  are  a  band  of  religious  fanatics  in  the 
mountains,  attacked  the  civilized  towns  and  succeeded  in  defeating  a 
small  force  of  constabulary  and  in  killing  two  of  its  officers.  Colonel 
Taylor,  together  with  100  men,  inflicted  such  a  severe  defeat  on  them 


OF    THE    THILIPPINP:    islands,    1900-] 903,  489 

that  their  leaders  were  killed  and  their  power  was  broken.  Many  of 
the  most  violent  were  arrested  and  are  now  confined  in  the  state's 
prison.  The}'  present  a  curious  combination  of  religion  and  robbery 
and  can  hardly  be  regarded  as  of  the  civilized  tribes.  Cebu  is  entirely 
quiet  now.  Occasional  reports  of  ladronism  in  the  provinces  of  Iloilo 
and  Capiz,  on  the  border  between  the  two  provinces,  indicate  that  all  the 
guns  have  not  been  captured,  but  the  conditions  in  the  two  provinces 
are  on  the  whole  quite  satisfactor3^ 

The  most  serious  trouble  of  this  kind  has  been  in  the  province  of 
Albay,  which,  due  to  its  hemp  production,  is  the  richest  province  in 
the  entire  archipelago.  When  the  insurgents  in  command  of  the 
forces  in  1901  surrendered  in  Alba}^  two  of  the  subordinates  named 
Toledo  and  Saria  with  a  very  small  force  remained  in  the  mountains 
with  a  few  guns,  but  were  unable  to  create  substantial  disturbance  in 
the  province  until  a  former  insurgent  named  Ola,  said  to  be  a  Tagalog, 
left  the  town  of  Guinobatan  because  of  a  quarrel  with  a  presidente 
who  had  threatened  to  prosecute  him  for  burning  his  house  during  the 
previous  insurrection  while  Ola  was  an  insurgent  soldier.  Ola  sur- 
rounded himself  with  a  number  of  malcontents,  whose  objection  seems 
to  have  been  not  to  the  insular  government  or  to  the  American  Gov- 
ernment, but  to  the  political  rule  of  the  wealth}^  hemp  growers  in 
municipal  governments  in  the  province  of  Albay.  It  was  the  custom 
there  to  elect  rich  men  to  the  presidencias  in  the  province,  and  there 
may  have  been  some  abuse  of  power.  At  any  rate,  Ola's  career  began 
as  a  protest  against  municipal  tyranny  and  awakened  the  sympathy  of 
the  poor  masses.  After  he  went  into  the  mountains  he  was  soon 
joined  by  Toledo  and  Saria  and  there  was  begun  a  regular  campaign 
of  collecting  contributions,  which  was  so  profitable  in  the  rich  prov- 
ince that  the  forces  of  Ola  continued  to  grow.  At  the  town  of  Ola 
some  of  Ola's  followers  were  able  to  secure  assistance  from  the 
townspeople  and  also  from  the  municipal  police  in  surprising 
the  constabulary  who  were  there  and  taking  awa}^  about  40  guns. 
This  of  course  was  a  great  aid  to  Ola's  force,  and  the  disturbance  soon 
spread  to  the  entire  province.  It  is  undeniable  that  there  was  both 
sympathy  on  the  part  of  the  poor  people  with  Ola's  cause  and  there 
was  also  fear  of  vengeance  at  his  hands  sufficient  to  induce  inaction  by 
the  people.  In  consequence  a  reign  of  terror  was  inaugurated  through 
the  province  which  it  was  necessary  to  meet  by  radical  measures. 
Accordingly,  authority  was  given,  by  section  6  of  the  act  of  the  Com- 
mission numbered  728,  and  a  resolution  of  the  Commission  (copies  of 
which  arc  appended)  to  tlic  governor  and  the  constabulary  authorities 
to  ))ring  the  people  from  tlic  outlying  barrios,  where  they  were  exposed 
to  the  invasion  of  ladrones,  nearer  to  the  populated  portions  of  their 
respective  towns.  Under  the  law  it  l)ecame  the  duty  of  the  pi'ovin- 
cial  board  to  see  to  it  that  the  people  thus  brought  in  were  properly 


4\)0  KKPORTS    OK    THK    CIVIL    OOVKKNMKNT 

iVil  ami  no!  siil'jrctod  to  imiuHU'ssiiry  piivatioii.s.  For  ii  tiiiio  tho 
action  (Ik!  not  have  any  ollVct.  No  o-iins  Avcrc  beino-  ohtainod,  and 
while  tho  nuinliof  ol"  attacks  b}'  the  hidroncs  was  very  much  reduced 
sul>stantial  progress  did  not  seem  to  be  making.  The  i)rovince  was 
visited  l)v  Vice-Governor  Wright  and  Coumiissioner  Tavera,  who 
talked  to  tlie  peo})le  on  the  subject  of  their  duty  to  suppress  this  dis- 
order. The  eflect  of  the  visit  of  these  gentlemen  and  the  policy 
adopted  of  depi'iving  those  in  the  mountains  of  means  of  support  wat- 
finally  crowned  with  success  Avhen  Ola  and  his  entire  body  of  follow 
ers  with  all  their  guns  came  into  Guinobatan  and  surrendered  uncon- 
ditionally. They  were  in  a  most  ragged  and  pitiable  condition.  Later 
on  Toledo  with  his  small  body  of  followers  came  in,  and  most  of 
Saria's  men  having  been  captured,  there  is  complete  peace  and  cpiiet 
in  Alba3\  All  the  prisoners  are  being  tried.  Some  have  been  sen- 
tenced to  death  for  particular  murders.  The  remainder  will  doubtless 
be  sent  to  state's  prison  for  long  terms. 

The  effect  of  the  disturbance  has  produced  substantial  financial  loss 
in  the  province.  The  governor  estimates  that  hemp  production  and 
sale  have  been  interfered  with  to  the  extent  of  some  ten  or  twelve 
millions  of  dollars  Mexican.  Still  the  province  is  rapidly  recovering 
from  the  effect  of  the  disturbed  conditions.  By  telegram  of  December 
8  Governor  Bctts  advises  me  that  "the  clearances  of  hemp  in  this 
province  for  the  month  of  November  exceeded  any  previous  month  in 
the  history  of  the  province."" 

Ola  could  have  been  induced  to  surrender  some  months  earlier  had 
the  authorities  been  willing  to  grant  immunity  from  prosecution.  As 
it  had  now  become  the  settled  policy  of  the  government  to  treat  per- 
sons in  arms  in  their  proper  light, as  ladrones  and  outlaws,  and  not  to 
accept  them  as  prisoners  of  war  or  to  grant  them  immunity  from  ordi- 
nar^^  or  criminal  prosecutions,  permission  was  not  granted  to  extend 
immunity.  The  reason  which  actuated  the  government  in  insisting 
upon  this  course  is  that  surrenders  made  with  promises  of  immunity 
do  not  ordinarily,  when  the  dealings  are  with  the  criminal  class,  result 
in  anj'thing  but  a  temporary  cure,  for  as  soon  as  the  hard  effects  of 
the  campaign  have  worn  off  the  criminal  thus  pardoned  in  advance 
feels  a  longing  for  his  old-time  business  and  returns  to  the  woods  and 
mountains,  there  to  begin  again  the  practice  of  his  profession  of  a 
ladron.  The  confinement  of  the  leaders,  and  all  the  rank  and  file, 
under  long  sentences  of  confinement  in  the  penitentiary  has  a  much 
more  permanently  tranquilizing  effect. 

In  Nueva  Ecija  and  Tarlac  a  man  named  Felipe  Salvador,  who  pro- 
fesses to  exercise  miraculous  and  supernatural  power,  has  been 
attempting  to  rouse  the  people  of  his  neighl)orhood  to  resistance  to 
lawful  authority  and  association  with  him  in  a  kind  of  religious  rite. 
Their  religious  character,  however,  does  not  prevent  Salv^ador  and 


OF    THE    PHILirriNB:    ISLANDS,    1900-1903.  491 

hi.s  friends  from  constituting  a  ladrono  band  preying  on  the  neighbor- 
ing countr3\  Salvador  has  made  one  or  two  raids  on  towns,  but  he 
has  been  punished  severel}"  in  several  engagements  with  the  constab- 
ulary, and  has  now  withdrawn  into  an  obscure  part  of  Nueva  Ecija. 

As  an  instance  of  the  character  of  people,  that  in  the  mountain  dis- 
tricts of  these  islands  are  reported  as  insurrectos  sometimes,  as  ladrones 
at  other  times,  as  Pulajanes  at  other  times,  and  as  mere  ordinary  out- 
laws at  others,  I  copy  a  report  from  Lieutenant  Guild  in  regard  to  the 
action  of  three  ladrones  in  Capiz.     The  report  is  as  follows: 

Calivo,  Panay,  October  12,  1903. 

Sir:  I  have  the  honor  to  report  that  on  the  29th  day  of  September  two  ladrones, 
by  name  Ompong  and  Tuest,  accompanied  by  one  unknown,  entered  the  barrio  of 
Ilijan,  of  Navas,  and  murdered  13  women  and  children.  The  constabulary  of  Ibajay 
were  notified  the  same  afternoon,  and  at  once  set  out  for  the  scene  of  the  crime.  On 
arriving  at  the  barrio,  no  trace  of  the  ladrones  could  be  found,  nor  could  any  informa- 
tion be  gotten  from  the  inhabitants,  as  they  seemed  terror  stricken.  The  only 
information  of  any  vahie  at  all  was  that  the  leader  of  the  ladrones,  Ompong,  had  a 
Remington  rifle  and  20  rounds  of  ammunition,  but  that  his  companions  had  only 
spears  and  bolos.  As  far  as  can  be  learned,  the  killing  was  not  done  for  the  sake  of 
gain,  but  for  the  sake  of  one  of  the  customs  of  the  mountaineers.  The  child  of 
Ompong  having  died  of  cholera,  he,  as  is  their  custom,  went  out  and  had  these  others 
killed  so  his  might  have  company  and  servants  in  the  other  world.  The  killing  was 
all  done  with  the  bolos  and  spears,  Ompong  simply  threatening  the  men  of  the 
barrio  with  his  gun  while  the  women  and  children  were  being  murdered.  The 
killing  of  the  people  could  never  have  occurred  had  the  men  of  the  barrio  interfered, 
instead  of  looking  on  and  doing  nothing.  The  country  has  been  thoroughly 
searched,  but  no  trace  of  the  ladrones  found,  and  it  is  generally  believed  that  they 
returned  to  Antique  rrovince,  where  they  live. 

Very  respectfully,  James  J.  Guild, 

Third  Lieutenant,  PhiUppine  Constahnlary, 

Commanding  Second  Section. 

The  Senior  Inspector,  Capiz,  Capiz,  P.  I. 

THE    USE   OF   SCOUTS   WITH    THE    CONSTAIiULARY. 

The  act  of  Congress  authorizing  the  use  of  the  native  scout  com- 
panies under  the  command  of  those  constabulary  officers  who  were 
detailed  from  the  Regular  Army  has  worked  exceedingly  well.  Gen- 
eral Davis  and  General  Wade  have  both  acted  with  the  utmost  dispatch 
in  responding  to  the  call  of  the  civil  governor  for  scout  companies, 
and  there  have  been  in  use  during  the  last  year  from  three  to  five 
thousand  native  scouts  operating  with  the  consta))ulary.  This  arrange- 
ment presents  some  anomalies  which  seem  greater  to  the  military  com- 
mander than  to  the  civil  government;  but  however  unsymmetrical  the 
union  of  the  two  forces  under  a  constabulary  officer  may  seem  to  be, 
it  has  had  the  immense  advantage  of  enabling  the  civil  government, 
with  native  troops,  to  suppress  disorder.  "  It  is  of  the  utmost  political 
imi)ortancc  that  the  regului-  soldiery,  under  a  connnand  more  or  less 
independent  of  the  civil  government,  should  not   be  called  in  to  sup- 


4*)li  UKTOKTS    OK    TlIK    CIVIL    (iOVKKNMKNT 

press  disorders  and  to  nKiintuin  the  authority  of  the  civil  government 
until  all  the  hnx-vs  of  natives,  whether  eonstahulary  or  scouts,  should 
be  used  for  this  purpose.  Nothlno-  could  be  further  from  the  truth, 
nothing  could  be  more  unfounded  or  unfair,  than  the  inference  that 
the  use  of  scouts  in  association  with  the  constabulary  for  the  suppress- 
ing of  disorder  is  a  reflection  upon  the  military  establishment  or  upon 
those  who  are  in  command  thereof;  but  we  know  in  our  own  country 
how  loth  governors  of  States  are  to  call  out  militia,  and  how  loth  the 
President  is  to  summon  the  Regular  Army  in  the  suppression  of 
domestic  disorder.  In  this  country  it  is  politically  most  important 
that  Filipinos  should  suppress  Filipino  disturbances  and  arrest  Filipino 
outlaws. 

RECONCENTRATION. 

With  reference  to  the  act  of  the  Commission  which  authorized,  upon 
resolution  of  the  Commission,  the  provincial  governors  to  withdraw 
the  outlying  barrios  of  towns  to  their  respective  centers  of  population 
and,  in  a  sense,  to  reconcentrate  the  residents  of  the  outlying  barrios, 
it  may  be  said  that  this  course  is  justified  by  the  peculiar  character  of 
the  country  and  the  wonderful  opportunity  that  it  offers  a  coijipara- 
tively  small  body  of  men  to  terrorize  an  entire  province  and  to  allow 
persons  to  evade  the  utmost  efforts  of  large  bodies  of  constabulary. 
The  act  is  appended  hereto  as  Exhibit  E.  So  effective  is  this  system 
against  ladrones,  if  carried  on  properly,  and  so  comparatively  easy  is 
it  for  the  people  in  this  country,  without  great  suffering  or  incon- 
venience, to  move  from  one  part  of  the  country  to  another,  erecting 
temporary  houses  of  light  material,  that  in  Tayabas,  which  at  one 
time  was  much  afflicted  with  ladrones  under  a  man  named  Rios,  to 
whom  I  referred  in  my  last  annual  report  and  who  has  now  expiated 
his  crimes  on  the  gallows,  the  so-called  reconcentration  was  used  vol- 
untarily by  the  towns  that  were  invaded  by  Rios  and  carried  to  a 
successful  conclusion  before  the  central  authorities  were  advised  of 
the  methods  pursued. 

BANDOLERISMO    STATUTE. 

The  treatment  of  ladrones  by  criminal  prosecution  has  been  most 
effective.  A  statute  known  as  the  "  bandolerismo  statute  "  was  enacted 
in  November  of  last  year  to  meet  an  emergency  which  then  seemed  to 
be  great.     The  statute  is  as  follows: 

Section  1.  Whenever  three  or  more  persons,  conspiring  together,  shall  form  a  band 
of  robbers  for  the  purpose  of  stealing  carabao  or  other  personal  property  by  means  of 
force  and  violence,  and  shall  go  out  upon  the  highway  or  roam  over  the  country 
armed  with  deadly  weapons  for  this  purpose,  they  shall  be  deemed  highway  robbers 
or  brigands,  and  every  person  engaged  in  the  original  formation  of  the  band,  or  join- 
ing it  tliereafter,  shall,  upon  conviction  thereof,  be  punished  by  death,  or  imprison- 
ment for  not  less  than  twenty  years,  in  the  discretion  of  the  court. 


OF    THP:    PHILITl'INE    ISLANDS,    1900-1903.  493 

Sec.  2.  To  prove  the  crime  descril^ed  in  the  previous  section,  it  shall  not  be  neces- 
sary to  adduce  evidence  that  any  member  of  the  band  has  in  fact  committed  robbery 
or  theft,  but  it  shall  be  sufficient  to  justify  conviction  thereunder  if,  from  the  circum- 
stances, it  can  be  inferred  beyond  reasonable  doubt  that  the  accused  was  a  member 
of  such  an  armed  band  as  that  described  in  said  section. 

Sec.  3.  Persons  guilty  of  the  crime  defined  in  section  one  may  be  punished  therefor 
in  the  court  of  first  instance  in  any  province  in  which  they  may  be  taken  or  from 
Avhich  they  may  have  fled. 

Sec.  4.  Every  person  knowingly  aiding  or  abetting  such  a  band  of  brigands  as  that 
described  in  section  one  l)y  giving  them  information  of  the  movement  of  the  police 
or  constabulary,  or  by  securing  stolen  property  from  them,  or  by  procuring  supplies 
of  food,  clothing,  arms,  or  ammunition,  and  furnishing  the  same  to  them  shall,  upon 
conviction,  be  punished  by  imprisonment  for  not  less  than  ten  years  and  not  niore 
than  twenty  years. 

The  difficulty  of  proof  against  persons  known  to  be  ladrones  in  fixing 
upon  them  particular  acts  of  violence  or  robbery  and  the  necessity 
for  severe  punishment  led  to  the  enactment  of  this  statute.  It  is  fre- 
quently very  easy  of  proof  to  show  that  the  persons  captured  have 
been  members  of  an  armed  band  running  about  the  country,  commit- 
ting or  attempting  to  commit  robberies  and  murder,  but  to  prove  that 
individuals  were  present  at  particular  robberies  is  entirely  impossible. 
The  act  was  therefore  drawn  to  permit  the  proof  of  the  existence  of 
the  band  and  the  membership  in  the  band,  beyond  reasonable  doubt,  as 
establishing  the  crime  of  ladronism.  It  is  not  too  much  to  say  that 
the  act  has  been  most  effective  in  securing  convictions  and  ridding  the 
various  provinces  of  this  pest  of  centuries.  The  courts  have  had  an 
immense  amount  of  labor  to  perform  in  hearing  the  various  cases,  but 
they  have  responded  with  energy  and  with  justice  to  the  call,  and  both 
Filipino  and  American  judges  have  exercised  much  firmness  in  impos- 
ing suitable  penalties  when  the  proof  required  conviction. 

During  the  3"ear  several  members  of  the  Hongkong  junta  have  come 
to  Manila.  They  have  been  required  to  take  the  oath  of  allegiance  to 
the  government  and  after  that  have  not  been  disturbed.  I  am  in  receipt 
of  a  verbal  communication  from  Senors  Apacibleand  Agoncillo,  the  two 
most  prominent  members  of  the  junta.  They  have  signified  their  inten- 
tion of  coming  to  Manila  if  they  are  not  to  be  subjected  to  prosecution. 

They  distinctly  repudiate  having  had  any  communication  with  San 
Miguel  or  the  recent  ladrone  leaders,  whom  they  characterize  as  cattle 
thieves  and  not  worthy  the  support  of  men  who  have  been  actuated 
by  other  motives.  I  have  assured  them  that  should  they  return  to 
Manila  they  would  simply  be  required  to  take  the  oath  of  allegiance, 
and  if  they  thereafter  lead  lawful  lives  and  take  no  part  in  the  insur- 
rection movements  they  will  be  wholl}^  undisturbed.  (December  18. 
Since  writing  the  above.  Doctor  Apacible  has  presented  himself  and 
taken  the  oath.) 

There  is  one  Filipino,  named  Ricarte,  who  was  at  the  head  of  the 
plot  to  explode  dynamite  bomljs  during  the  Lawton  funeral  in  Manila, 
23181—04 32 


4^U  KKroKTS    OK    TlIK    CIVIL    (ioVKKNMKNT 

ami  also  sot  on  foot  a  nuin)H>r  of  conspiracios  to  burn  the  city.  He 
was  subsoqucnth'  sent  to  (tiuuu,  and  then  on  his  return  from  there 
declined  to  take  the  oath  of  allegiance  and  went  on  to  Hongkong-.  It 
is  reported  that  he  has  quai'reled  with  the  other  inem))ers  of  the  junta 
and  that  he  continues  his  plotting.  There  is  also  said  to  be  a  social- 
istic or  anarchistic  society  which  has  its  headquarters  at  Paris,  directed 
to  the  establishment  of  a  universal  democratic  Filipino  republic,  on 
socialistic  lines,  but,  so  far  as  Ave  are  advised,  they  have  attempted 
nothing  in  the  way  of  actual  operations,  though  they  occasionally  favor 
the  mails  with  their  publications. 

Dominador  Gomez  y  Jesus  was  born  in  the  Philippines  and  subse- 
quentl}^  went  to  Spain  where  he  studied  medicine  and  was  graduated 
as  a  surgeon.  He  entered  the  Spanish  army  as  a  surgeon  and  served 
in  Spain  during  the  two  revolutions  of  1896  and  1898.  He  appears 
to  have  been  a  member  of  the  junta  of  Madrid,  organized  to  oppose 
American  sovereignty  in  the  islands  after  1898,  and  to  have  written 
articles  for  a  paper  published  in  Madrid,  called  the  "Filipinas  ante 
Eurdpa."  After  peace  had  been  completely  restored  in  the  islands. 
Doctor  Gomez  came  to  Manila.  His  cooperator,  Isabelo  de  los  Reyes, 
had  organized  a  working  man's  union,  called  the  "Union  Obrera 
Democratica,"  but  having  been  arrested  and  subjected  to  criminal 
prosecution  for  an  illegal  connection  with  a  strike,  he  resigned  the 
presidency  and  Doctor  Gomez  was  elected  to  take  his  place  at  the 
head  of  the  union.  Subsequently  Doctor  Gomez  also  became  the  presi- 
dent of  the  Nationalist  party.  By  contributions  from  the  members  of 
the  Union  Obrera,  he  was  able  to  publish  a  newspaper  called  the  "Los 
Obreros."  He  was  a  man  of  considerable  power  of  speech  and  able  to 
arouse  audiences  of  the  lower  class  of  Filipinos  by  his  grandiloquence. 
It  soon  became  evident  that  there  were  members  of  the  Union  Obrera 
and  of  the  Nationalist  party  who  were  very  strongly  in  sj^mpathj^  with 
the  ladrone  bands,  headed  by  San  Miguel,  then  operating  in  Rizal 
and  Bulacan.  Doctor  Gomez  recommended  to  me  in  his  newspaper 
that  as  a  solution  of  the  difficulties,  we  invite  all  the  ladrones  to  come 
in  and  surrender  their  arms  on  the  agreement  that  we  should  guarantee 
them  immunity  and  insure  them  food  or  labor  for  one  year.  Subse- 
quently Doctor  Gomez  applied  to  me  for  the  pardon  in  advance  of 
Faustino  Guillermo,  second  in  command  in  Rizal,  one  of  the  most 
noted  desperadoes  and  ladrones  in  the  islands,  a  man  since  captured 
and  now  under  sentence  of  death  for  murder.  It  was  reported  that 
Doctor  Gomez  was  using  the  Union  Obrera  as  a  means  of  collecting 
money  to  run  his  newspaper,  and  to  enrich  his  own  pocket.  This  led 
to  the  passage  of  a  law,  denouncing  as  embezzlement  the  diversion  of 
funds  collected  in  such  societies  from  the  purpose  for  which  the 
society  was  organized  and  for  which  the  funds  were  contributed. 
Prosecution   of  Doctor   Gomez  was   begun   under  several  different 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  495 

charges.  Under  the  first  charge  of  organizing  an  illegal  association 
he  has  been  convicted  and  sentenced  for  four  j'^ears  to  Bilibid.  There 
are  other  charges  against  him  for  which  he  will  be  tried,  including 
embezzlement  and  aiding  and  abetting  ladrones.  His  prosecution  has 
much  assisted  in  bringing  about  the  present  satisfactory  condition 
throughout  the  Archipelago. 

DISSOLUTE   AMERICANS   AND   VAGRANCY   ACTS. 

One  of  the  great  obstacles  that  this  government  has  to  contend 
with  is  the  presence,  in  a  large  majority  of  the  towns  of  the  Archi- 
pelago, of  dissolute,  drunken,  and  lawless  Americans  who  arc  willing 
to  associate  with  low  Filipino  women  and  live  upon  the  proceeds  of 
their  labor.  They  are  truculent  and  dishonest.  They  borrow,  beg, 
and  steal  from  the  native.  Their  conduct  and  mode  of  life  are  not 
calculated  to  impress  the  native  with  the  advantage  of  American  civili- 
zation. When  opportunity  offers,  however,  they  are  loudest  in 
denunciation  of  the  Filipinos  as  an  inferior,  lying  race.  To  rid  the 
country  of  this  class  of  Americans  the  Commission  passed  two  acts. 

The  first  of  these  is  No.  519,  "An  act  defining  vagrancy  and  provid- 
ing for  punishment  therefor,"  and  reads  as  follows: 

Section  1.  Every  person  having  no  apparent  means  of  subsistence,  who  has  the 
physical  abiUty  to  work  and  who  neglects  to  apply  himself  or  herself  to  some  lawful 
calling;  every  person  found  loitering  about  saloons  or  dramshops  or  gambling  houses 
or  tramping  or  straying  through  the  country  without  visible  means  of  support;  every 
person  known  to  be  a  pickpocket,  thief,  burglar,  ladron,  either  by  his  own  confession 
or  by  his  having  been  convicted  of  either  of  said  offenses,  and  having  no  visible 
or  lawful  means  of  support  when  found  loitering  about  any  gambling  house,  cockpit, 
or  in  any  outlying  barrio  of  a  pueblo;  every  idle  or  dissolute  person  or  associate  of 
known  thieves  or  ladrones  who  wanders  about  the  country  at  unusual  hours  of  the 
night;  every  idle  person  who  lodges  in  any  barn,  shed,  outhouse,  vessel,  or  place 
other  than  such  as  is  kept  for  lodging  purposes,  without  the  permission  of  the  owner 
or  person  entitled  to  the  possession  thereof;  every  lewd  or  dissolute  person  who  lives 
in  and  about  houses  of  ill-fame;  every  common  prostitute  and  common  drunkard,  is 
a  vagrant,  and  upon  conviction  shall  be  punished  by  a  fine  of  not  exceeding  one  hun- 
dred dollars  or  by  imprisonment  not  exceeding  one  year  and  one  day,  or  both,  in  the 
discretion  of  the  court. 

The  second  is  as  follows: 

Skction  1.  Upon  the  conviction  of  any  citizen  of  the  United  States  under  act  num- 
bered five  hundred  and  nineteen,  entitled  "An  act  defining  vagrancy  and  providing 
for  punishment  therefor,"  the  court  may  suspend  sentence,  conditioned  ujion  tlie 
convict  leaving  the  Philippine  Islands  and  not  returning  thereto  for  a  period  of  not 
more  than  ten  years;  and  the  fulfillment  of  this  obligation  shall  be  deemed  as  an 
extinguishment  of  the  prescri))ed  sentence. 

Sec.  2.  In  such  cases  the  court  or  judge  may  order  the  removal  of  the  convict  to 
Bilibid  Prison,  in  the  city  of  Manila,  there  to  remain  in  custody  until  he  can  be 
placed  upon  a  steamer  returning  to  the  United  States.  This  order  shall  be  executed  in 
the  manner  prescribed  by  the  civil  governor  in  each  case. 

Sec.  ;>.  There  is  hereby  api)r()iiriut('(l,  out  of  any  funds  in  tlu;  insular  treasury  not 
otherwise  appropriated,  an  amount  sullicient  to  pay  the  actual  and  necessary  expen- 
ses in  carrying  out  the  provisions  of  this  act. 


49(l  REPORTS    OF    THE    CIVIL    OOVEKTSTMP^NT 

Tho  t'ormer  of  the  two  acts  has  also  boon  usoful  in  iMiablinj^  towns 
to  rid  tlionisolvos  of  Filipinos  sns])cctod  of  coinjjlicit}'  with  ladronos, 
who  have  no  visible  means  of  suppoi't  and  who  arc  probubl}'  spies  of 
die  ladrones  for  the  purpose  of  ena))lin<;'  them  to  make  lucrative  raids. 

friars'  lands  and  relioious  questions. 

As  early  as  1898,  the  Peace  Commission,  which  negotiated  the  treaty 
of  Paris,  })ecanie  convinced  that  one  of  the  most  important  stops  in 
tranquilizing-  the  islands  and  in  reconciling  the  Filipinos  to  the  Amer- 
ican Government  would  be  the  governmental  purchase  of  the  so-called 
friars'  agricultural  lands  in  the  Philippines,  and  the  sale  of  these 
lands  to  the  tenants  upon  long,  easy  payments.  The  same  policy 
was  recommended  liy  the  first  or  Schurman  Commission  after  an 
investigation  b}-  it,  and  in  the  first  report  of  the  present  Philippine 
Commission  much  time  was  devoted  to  the  political  phases  of  the  rela- 
tions of  the  four  great  religious  orders  to  the  people  and  the  wisdom 
of  buying  the  agricultural  lands  and  selling  them  to  the  tenants  was 
much  commented  on  and  approved.  The  Secretary  of  War  and  the 
President  concurred  in  the  recommendations  of  the  Commission. 
Accordingly  in  May,  1902,  the  writer,  as  civil  governor  of  the  Philip- 
pine Islands,  was  directed  by  the  Secretary  of  War  to  visit  Rome  and 
to  confer  with  the  Pope  or  such  agents  as  he  might  designate  in 
respect  to  the  question  of  buying  the  friars'  agricultural  lands  and 
other  questions  of  a  similar  character  which  were  pending  between 
the  Roman  Catholic  Church  and  the  Government.  The  negotiations 
which  were  had  on  this  subject  in  Rome  were  set  forth  in  the  corre 
spondence  published  by  the  Secretary  of  War  in  his  report  to  Con- 
gress for  last  year.  In  a  word,  the  Pope  approved  the  purchase  of 
the  agricultural  lands  of  the  three  great  religious  orders  that  owned 
agricultural  lands  in  the  islands  and  appointed  an  apostolic  delegate 
with  as  full  powers  as  he  could  be  invested  with  to  bring  about  this 
result. 

The  aj^ostolic  delegate,  Monsignor  Jean  Baptiste  Guidi,  arch- 
bishop of  Staurpoli,  reached  the  islands  in  the  fall  of  1902,  and 
negotiations  were  at  once  begun.  In  one  of  the  letters  written  by 
Cardinal  Rampolla,  contained  in  the  correspondence  already  referred 
to,  he  stated  on  behalf  of  the  Holy  See  that  the  resources  of  the 
religious  orders  would  be  taken  into  charge  by  the  supreme  authori- 
ties for  the  benefit  of  the  church  in  the  Philippines,  and  it  at  first 
seemed  that  the  religious  orders,  with  little  prospect  of  reaping  much 
pecuniar}'  benefit  from  the  sale  of  the  lands  under  this  arrangement, 
were  not  anxious  to  further  the  proposed  purchase.  Probably  this 
inference  did  an  injustice  to  the  religious  orders  in  view  of  the  event. 
It  turned  out  upon  examination  that  the  agricultural  lands  which  had 
originally  belonged  to  the  three  religious  orders  of  the  Philippines, 


OF    THE    PHTLIPPINE    ISLANDS,   1900-190.3.  497 

to  wit,  the  Dominicans,  the  Augustinians,  and  the  Recoletos,  aggre- 
gated 420,000  acres.  The  Connnission  in  1901  had  directed  a  survey 
to  be  made  by  a  Filipino  survej^or  or  agrimensor,  skilled  both  in 
surveying  agricultural  land  and  in  estimating  its  value,  by  name  Juan 
Villegas.  He  surveyed  between  1901  and  1903  all  the  agricultural 
holdings  of  the  three  religious  orders,  except  an  estate  belonging  to 
the  Augustinians  in  the  province  of  Isabela  and  an  estate  belonging  to 
the  Recoletos  in  the  province  of  Mindoro.  He  classified  the  lands 
and  placed  a  value  upon  the  differing  classes,  giving  data  from  which 
it  was  possible  to  estimate  the  total  value  of  the  lands,  except  the  two 
estates  in  Isabela  and  Mindoro,  respectively,  already  mentioned,  the 
value  of  which  was  determined  by  the  agents  of  the  Commission 
from  other  sources.  The  event  proved  that  the  Dominicans  had  con- 
ve3"ed  their  holdings,  amounting  to  60,461  hectares,  to  one  Andrews, 
an  Englishman  living  in  Manila,  under  a  promoter's  contract;  that 
Andrews  organized  a  company,  under  the  supposed  existing  laws  of 
the  Philippines,  known  as  the  "Philippine  Sugar  Estates  Developing 
Compan}^  (Limited),"  to  which  he  conveyed  all  the  Dominican  lands, 
with  the  exception  of  a  small  estate  known  as  San  Juan  Del  Monte, 
containing  156  hectares,  which  was  held  under  such  trust  restrictions 
as  to  prevent  its  sale.  Investigation  showed  that  the  Augustinian 
order  as  far  back  as  1893  or  1894  had  conveyed  to  a  Spanish  corpo- 
ration, known  as  the  "Sociedad  Agricola  de  Ultramar,"  all  of  its  agri- 
cultural holdings.  It  further  appeared  that  the  Recoletos  had  con- 
veyed the  estate  of  Imus,  or  rather  the  estates  of  San  Juan  and  San 
Nicolas,  known  as  the  "Imus  estate,"  containing  18,419  hectares,  to  a 
compan}^  organized  under  the  laws  of  Hongkong  or  Great  Britain. 
The  Mindoro  estate  remained  in  title  and  possession  with  the  Recoleto 
order  of  the  Philippines.  It  became  necessary  therefore  to  deal  with 
the  representatives  of  the  title  holders  to  the  lands.  The  Domin- 
ican lands,  the  title  to  which  was  in  the  Philippine  Sugar  Estates 
Development  Company  (Limited),  were  represented  by  Senor  Don 
Francisco  Gutierrez,  a  stockholder  and  managing  director  of  the  com- 
pany. The  Augustinian  lands  owned  by  the  Sociedad  Agricola  de 
Ultramar  were  represented  by  the  attoi'ney  in  fact  of  the  compan}^,  an 
Augustinian  friar,  Padre  Juan  M.  Yanez.  The  Inms  estate,  conveyed 
to  the  British  Manila  ?]states  Company  (Limited),  Avas  represented 
by  a  young  Englishman  named  Marcus  McGregor.  The  Mindoro 
estate  of  the  Recoletos  was  represented  by  the  procurator  of  the 
Recoleto  order  in  the  Philippines. 

In  order  to  determine  the  value  of  the  estates,  the  representatives 
of  the  various  companies  and  other  interests  were  invited  to  attend  a 
hearing,  when  various  witnesses  were  called  to  testify.  The  apostolic 
delegate  was  also  present.  A  stenographic  report  of  these  hearings 
is  hereto  attached  and  marked  "Exhibit  F." 


49S!  KKPOETS    OF    THE    CTVTL    GOVERNMENT 

III  addition  to  tiio  lie:u'iTio-s  written  stiitonionts  were  made  b}^  experts 
for  e:icli  interest  and  wei'e  tiled  with  the  apostolic  delegate  and  with 
uie.  The  representatives  of  the  various  interests  were  not  disposed  at 
tirst  to  welcome  the  presence  in  the  conference  of  the  apostolic  dele- 
gate. It  was  vigorously  denied  that  the  friars  retained  any  titular 
interest  in  the  lands  which  were  the  subject  of  the  negotiation,  and  the 
right  of  the  apostolic  delegate  to  intervene  was  therefore  questioned. 
From  the  best  information  that  I  could  obtain  it  was  true  that  the 
religious  orders  had  parted  with  their  legal  title  to  the  shares  in  the 
new  companies,  except  the  Recoletos  in  Mindoro,  and  that  it  was  very 
dithcult  to  find  out  just  what  their  interest  in  the  property  continued 
to  be.  That  they  had  an  interest,  and  a  most  substantial  one,  went 
without  saying,  but,  for  reasons  it  is  unnecessary  to  comment  on,  these 
interests  had  been  made  as  ambiguous  and  doubtful  as  possible.  In 
accordance  with  the  agreement  reached  in  Rome,  I  sent  to  the  apostolic 
delegate  a  request  for  a  statement  of  the  exact  interests  retained  by 
the  religious  orders  in  the  Philippines  in  the  lands  which  were  the 
subject  of  negotiation.  No  formal  answer  to  this  letter  was  ever 
received,  but  informally  it  was  stated  to  me  by  the  delegate  that  the 
authorities  in  the  Philippines  had  informed  him  that  they  had  so  dis- 
posed of  their  interests  that  they  were  unable  to  make  a  statement  of 
what  their  interests  were,  if  any.  The  value  of  the  lands,  as  estimated 
according  to  the  statements  of  the  agents  of  the  companies,  aggregated 
a  sum  between  thirteen  and  fourteen  millions  of  dollars  gold.  The 
estimate  of  Villegas,  the  surveyor  employed  by  the  Commission, 
showed  the  valuation  of  the  lands  to  be  $6,043,000  gold,  if  his  value 
in  Mexican  should  be  reduced  to  gold  at  the  rate  of  two  to  one,  which 
was  the  gold  rate  about  the  time  of  his  survey  and  classification, 
though  the  Mexican  dollar  fell  considerably  after  that.  Considering 
the  bad  conditions  which  prevailed  in  agriculture,  the  loss  of  cattle, 
the  dispute  concerning  title,  and  the  agrarian  question  that  must  always 
remain  in  the  management  of  these  estates  and  embarrass  the  owner, 
I  considered— and  I  believe  the  Commission  generally  agreed  with 
me— that  $6,043,000  gold  was  a  full  price  for  the  lands.  The  sum, 
however,  was  scouted  by  the  persons  representing  the  owners,  and  there 
appeared  to  be  very  little  prospect  of  reaching  an  agreement.  With 
the  knowledge  and  approval  of  the  Commission  and  of  the  Secretary 
of  War  and  the  President  subsequently  had,  I  sent  a  letter  to  the 
apostolic  delegate  and  forwarded  a  coi)y  to  each  representative  of  the 
respective  estates,  as  follows: 

Office  op  the  Civil  Governor  of  the  Philippine  Islands, 

Manila,  P.  I.,  July  5,  1903. 

Your  Excellency:  After  a  very  full  consideration  of  the  subject,  and  with  the 

concurrence  of  the  Commission,  I  beg  to  make  an  offer  on  behalf  of  the  Philippine 

Government  for  the  so-called  Friars'  lands,  which  include,  first,  certain  haciendas 

at  one  time  owned  by  the  Dominican  order  of  these  islands  and  now  owned  bv  the 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  499 

Philippine  Sugar  Estates  Development  Company,  represented  by  Mr.  Gutierrez; 
second,  certain  haciendas  at  one  time  owned  by  the  Augustinian  order  and  now 
owned  by  the  Compania  Agricola  de  Ultramar,  represented  by  the  Augustinian 
friar.  Padre  Juan;  and  third,  the  haciendas  of  San  Juan  and  San  Nicolas,  generally 
known  as  the  Imus  estates,  at  one  time  owned  ])y  the  Recoleto  order,  and  now 
owned  by  ar  English  corporation,  the  British  Manila  Estates  Company  (Limited), 
represented  by  Jlr.  McGregor,  and  also  an  estate  in  Mindoro  of  60,000  acres, 
still  owned,  as  I  am  informed,  bj'  the  Recoleto  order.  The  offer  I  am  about 
to  make  is,  of  course,  subject  to  the  approval  of  the  Secretary  of  War,  but  if 
accepted,  it  will  doubtless  receive* his  approval. 

The  members  of  the  Commission  believe  that  the  evidence  of  Juan  Villegas  as  to 
the  value  of  these  lands  at  present  is  just.  At  the  conferences  between  your  excel- 
lency, the  representatives  of  the  three  corporations  now  holding  title,  and  myself, 
there  was  some  discussion  as  to  whether  the  fall  in  the  price  of  silver  and  the  varia- 
tion in  the  silver  standard  in  the  gold  values  ought  not  to  play  a  large  part  in 
weighing  Seuor  Villegas's  evidence.  My  own  strong  conviction  is  that  Seiior  Ville- 
gas's  evidence  is  not  in  the  slightest  degree  affected  by  the  variation  in  the  price  of 
silver,  for  the  reason  that  the  persons  who  own  lands  and  who  buy  and  sell  them  in 
the  provinces  where  the  lands  in  question  are  situated  know  no  other  standard  for 
the  estimation  of  the  value  of  lands  than  that  of  ^lexican  silver.  It  may  be  that 
indirectly  the  fall  in  the  price  of  silver  will  ultimately  affect  the  value  of  these  lands 
in  silver,  and  it  is  possible  that  some  slight  increase  has  already  taken  place  in  the 
value  of  the  lands  estimated  in  silver.  But  it  seems  clear  from  the  evidence  that 
the  increase  is  not  at  all  commensurate  with  the  fall  in  silver.  Nevertheless,  for  the 
purpose  of  reaching  an  agreement,  we  are  willing  to  waive  any  such  discussion  by 
treating  the  value  placed  by  Seiior  Villegas  on  the  lands  in  Mexican  as  a  value  to  be 
reduced  to  gold  at  the  ratio  of  two  to  one.  This  ratio  in  fact  did  prevail  when  Senor 
Villegas  began  his  surveys  in  November,  1901,  but  very  soon  changed.  This  is  a 
concession  which  amounts  to  an  increase  in  the  valuation  of  the  land  over  what  it 
would  be  at  the  present  rate  of  Mexican  of  a  little  less  than  20  per  cent. 

I  inclose  herewith  as  Exhibit  G  detailed  and  summarized  statements  of  the  various 
valuations  of  Seiior  Villegas,  who  has  examined  and  placed  a  value  upon  all  the 
estates  involved  in  this  matter,  except  an  estate  of  the  Augustinians  in  Isabela  of 
some  60,000  acres,  which  is  almost  wholly  unimproved,  and  an  estate  of  the  Reco- 
letos  in  Mindoro  of  about  the  same  extent.  I  asked  Mr.  Webber,  the  manager  of 
the  General  Tobacco  Company,  who  knows  the  Isabela  estate  well,  what  value  he 
placed  upon  it.  He  said  that  at  one  time  he  had  offered  one  hundred  thousand  gold 
for  it,  but  that  the  offer  was  declined.  I  asked  him  if  he  would  give  one  hundred 
and  fifty  thousand  or  two  hundred  thousand  for  it  in  gold,  and  he  said  that  he 
would  give  $200,000  for  it  in  gold  if  he  could  obtain  free  admission  of  Chinese  labor- 
ers into  the  islands.  I  said  to  him  that  that  was  impossible,  and  then  he  said  that 
he  would  not  give  $150,000  for  the  land.  The  value  of  this  land  is  in  the  statement 
assessed  at  $300,000  Mexican,  which  is  a  full  j)rice.  The  Mindoro  estate  is  fixed  at 
$600,000  Mexican,  because  of  definite  information  that  this  estate,  together  with  the 
cattle  on  it,  was  offered  as  late  as  last  fall  to  certain  gentlemen  in  the  city  of  Manila 
for  $700,000  Mexican,  and  that  the  offer  was  declined.  At  that  time  the  gold  Mexican 
ratio  was  between  two-forty  and  two-fifty.  The  other  valuations  in  the  inclosed 
statement  are  taken  from  Senor  Villegas's  evidence.  The  total  valuations  in  IMexican 
are  as  follows: 

The  Dominican  lands $5, 473,  799. 13 

The  Augustinian  lands 4, 407, 335.  65 

The  Recoleto  lands 2,  205,  303.  33 

Making  a  total  in  Mexican  currencv  of 12,  086,  438. 11 


500  REPORTS    OK    THE    OIVIL    (iOVERNMENT 

'llic  civil  i;i>vcriiiii('nt  [iniposi's  to  ])ay  for  u  yjooil  title  to  tlu'se  laiiils,  free  and  iiiiiii- 
riiinlu'red,  the  priiT.s  above  iianu'd  ivduced  to  ^(Ad  at  the  ratio  of  two  to  one,  as 
follows: 

For  the  lV)niiiiieun  lands |2,  736,  899.  57 

For  the  Augnstinian  landH 2,  208,  667.  8.3 

For  the  Reooleto  lands 1, 102,  651.  67 

Makinj;  a  total  in  gold  of 6,  043,  219.  07 

I  have  sent  a  copy  of  this  letter  of  the  representatives  who  were  present  at  our 
conferences,  Senor  Gutierrez  for  the  Dominican  lands.  Padre  Juan  for  the  Augustin- 
ian  lands,  and  Mr.  McGregor  for  the  Imus  estjite.  I  have  not  seen  any  representative 
of  the  Mindoro  estate,  and  so  assume  that  your  excellency  either  represents  the  Order 
of  the  Recoletos  or  will  forward  a  coi)y,  if  you  deem  it  wise,  to  the  proper  person. 

I  have  so  often  said  to  your  excellency  and  to  the  representatives  of  these  estates 
that  the  motive  of  the  Government  in  taking  this  land  is  purely  liolitical,  and  not 
for  the  purpose  of  profit,  that  perhaps  it  is  unnecessary  to  repeat  it.  Still,  as  this  is 
a  formal  offer,  it  may  not  be  improper  to  state  again  that  the  civil  government  in 
making  the  purchase  at  the  prices  herein  named,  if  they  shall  be  accepted,  has  not 
the  slightest  idea  that  it  will  make  any  protit  in  disposing  of  the  lands,  in  accordance 
with  the  act  of  Congress,  to  the  tenants  who  now  occupy  it.  On  the  contrary,  the 
members  of  the  Commission  are  confident  that  it  will  result  in  a  pecuniary  loss  to 
tlie  civil  government.  It  is  hoped  tliat  if  the  Government  takes  charge  of  the  land, 
it  will  be  better  able  to  secure  peaceable  possession  of  the  land  and  an  attornn^ent  of 
the  tenants  than  would  private  corporations,  especially  those  in  which  the  Spanish 
friars  are  supposed  to  have  a  large  interest.  What  the  Government  proposes  is  to 
buy  a  lawsuit,  and  something  more  than  a  lawsuit,  an  agrarian  dispute.  If  peaceable 
transfer  of  the  title  to  these  lands  from  the  corporations  now  claiming  ownership  in 
them  to  the  tenants  in  possession  could  be  accomplished  without  the  intervention 
of  the  civil  government,  the  civil  government  would  be  most  anxious  to  avoid  any 
intervention  in  the  matter  at  all.  Indeed  it  would  be  to  its  interest  to  contribute  by  a 
substantial  sum  to  this  peaceable  result.  While  we  hope  that  ownership  by  the  Gov- 
ernment may  accomplish  good,  the  hope  is  largely  based  on  conjecture.  Certainly 
the  purchase  of  these  lands  will  mean  the  assumption  of  another  very  heavy  burden 
by  the  Government  in  addition  to  those  which  it  is  now  attempting  to  carry.  We  are 
convinced  that  it  would  be  greatly  to  the  advantage  of  the  present  owners  of  the 
land  to  accept  the  offer.  It  involves  the  expenditure  of  16,000,000  gold,  a  sum  which 
must  be  secured  by  issuing  bonds  to  that  amount  under  the  act  of  Congress.  The 
members  of  the  Commission  are  unanimously  of  opinion  that  the  disadvantage  of  any 
substantial  increase  of  such  a  financial  burden  would  outweigh  any  advantage  which 
might  accrue  from  the  Government  ownership  of  the  lands. 

In  making  this  offer  I  beg  to  call  your  excellency's  attention  to  the  fact  that  the 
Secretary  of  War,  in  a  telegraphic  dispatch,  a  copy  of  which  I  transmitted  to  his 
eminence.  Cardinal  Rampolla,  in  my  letter  of  July  15, 1902,  requested  that  a  detailed 
statement  of  the  interests  retained  by  the  monastic  orders  in  the  corporate  stock  of 
the  companies  now  claiming  to  own  the  lands  be  furnished  to  me  by  the  Apostolic 
Delegate,  w'ho  was  to  be  sent  to  the  Philippine  Islands,  in  order  that  the  statement 
might  be  made  the  basis  for  the  proposed  negotiation.  The  request  of  the  Secretary 
was  acquiesced  in  by  Cardinal  Rampolla.  In  February,  1903,  I  invited  your  excel- 
lency's attention  to  this  matter  and  requested  that  the  details  requested  be  furnished. 
I  have  as  yet  received  no  formal  reply.  Without  waiting  for  it,  however,  I  have 
ventured  to  make  this  offer  with  the  hope  that  if  it  is  accepted  further  investigation 
and  discussion  may  be  avoided. 

With  the  hope  that  your  excellency  will  Ihid  it  consistent  with  your  views  of  the 


OF    THE    PHTLTPPTNE    ISLANDS,    1900-1903.  501 

situation  to  advise  the  representatives  of  the  owners  of  these  lands  to  aeeept  this 
offer,  I  beg  to  subscribe  myself,  with  great  respect. 
Your  excellency's  most  obedient  servant, 

Wm.  H.  Taft,  C'irll  Governor. 
Monsignor  Jean  Baptiste  Guidi, 

Archbishop  of  Staurpoli  and  AjwstoUc  Delegate 

to  the  Philippine  Islands,  Manila. 

I  received  a  negative  answer  from  all  of  the  representatives.  Not 
discouraged,  however,  by  circumstances  that  seemed  most  discourag- 
ing, the  apostolic  delegate  bent  his  energies  to  bringing  the  parties  to 
a  settlement.  After  some  negotiation  the  delegate  first  stated  that  he 
thought  he  could  arrange  a  sale  for  $10,500,000  gold.  I  told  him 
there  was  no  hope  of  bringing  about  a  purchase  at  that  figure.  Some 
months  later  I  was  advised  by  Mr.  McGregor  that  if  an  offer  was 
made  for  $8,500,000  he  thought  he  could  compass  the  sale.  This  was 
definitely  declined.  I  then  advised  the  apostolic  delegate  and  those 
interested  that  1  would  recommend  to  the  Commission  and  the  Secre- 
tary of  War  an  increase  in  the  price  offered,  for  the  sake  of  peace, 
of  $1,500,000,  but  no  more.  Then  followed  a  long  and  protracted 
discussion  between  the  parties  who  were  to  be  the  venders  as  to  how 
this  sum  should  be  divided,  and  there  was  much  difficult}^  in  arriving 
at  a  solution — so  great  a  difficulty,  indeed,  that  I  was  informed  that 
unless  $7,770,000  was  paid  there  was  no  hope  of  reaching  an  agree- 
ment. With  the  approval  of  the  Secretary  of  War  and  the  Commis- 
sion, I  replied  that  $7,543,000  was  our  ultimatum  and  that  we  would 
not  give  more  than  that,  and  this  was  ultimately  the  basis  upon  which 
the  price  was  fixed.  It  turned  out,  upon  further  investigation,  that  the 
Augustinian  Company  and  the  Sociedad  Agricola  de  Ultramar  had 
contracted  to  sell  the  Mandaloya  estate,  which  lay  in  the  province  of 
Rizal  and  extended  from  the  city  of  Manila  to  the  town  of  Pasig  along 
the  Pasig  River,  at  a  certain  price,  and  that  a  strip  150  meters  wide  by 
6  kilometers  running  along  the  river  had  been  contracted  to  be  sold  to 
the  railroad  company  for  mercantile  pitrposes.  The  Mandaloya  estate 
is  a  poor  estate,  from  an  agricultural  standpoint,  and  its  use  for  mer- 
cantile purposes  we  were  entirely  willing  to  acquiesce  in,  because  it 
would  not  present  the  difficulties  concerning  agricultural  tenancy  as 
the  remainder  of  the  land.  The  estate  contains  about  10,000  acres. 
By  omitting  this  from  the  land  sold  and  deducting  the  price  fixed  by 
Villegas,  with  25  per  cent  added  thereto,  and  making  certain  other 
reductions  for  parcels  sold  l)ona  fide  by  the  owners,  and  leaving  to  the 
Sugar  Estates  Development  Company  a  tract  of  sugar  land  of  2,500 
acres  on  the  hillside  of  the  Calamha  estate,  we  finally  closed  the  pur- 
chase of  upward  of  -llOjOOO  acres,  at  a  price  of  $7,289,000  gold.  Copies 
of  the  contracts  of  sale  are  hereby  appended  and  marked  Exhibit  H. 

It  is  thought  that  the  i-esult  of  those  negotiations  and  the  purchase 
of  the  lands  form  a  most  important  step  in  the  rehabilitation  of  the 


502  REr(1RTf^    OK    THE    OIVIL    GOVERNMENT 

people  t)f  tlio  islands  tuul  the  roadjiistnuMit  of  (heii  relalioiis  to  the 
Koman  Catholic  Cliurch,  which  can  not  but  be  of  material  benetit  in  a 
political  way  to  the  insular  and  provincial  governments.  The  disposi- 
tion of  the  lands  to  the  tenants  on  contracts  of  sale  with  easy  payments 
for  a  number  of  years  entails  a  woi'k  of  tremendous  labor  upon  the 
insular  j>-overnment  and  will  necessitate  the  organization  of  a  separate 
bureau  for  that  purpose.  We  can  not  prophesy  that  the  adjustment 
will  rid  us  entirely  of  the  agrarian  (piestions.  There  will  be  doubtless 
litigation  and  local  centers  of  distur])ance  growing  out  of  government 
landlordism;  but  the  elimination  of  the  friars  from  the  question  can 
not  but  tend  greatly  to  facilitate  satisfactory  adjustments.  During 
the  last  six  months  1  have  been  in  receipt  of  petitions  from  tenants 
in  the  provinces  of  Cavite  and  Laguna,  where  the  agrarian  question 
has  been  most  bitter,  urging  the  purchase  of  the  lands,  with  a  state- 
ment that  the  tenants  fully  understood  that  the  lands  are  to  be  sold 
to  theni  and  that  they  are  to  pay  for  the  same.  The  visit  to  Rome 
was  watched  with  intense  interest  by  the  people  of  the  islands,  and 
had  it  not  resulted  in  a  purchase  of  the  lands,  my  judgment  is  that 
great  disappointment  would  have  been  felt.  As  will  be  seen  ))y  a 
statement  which  follows,  the  number  of  friars  in  the  islands  is  rapidly 
diminishing  from  year  to  year,  and  with  the  adjustment  of  the  land 
question  and  the  division  of  the  pi'oceeds  between  the  orders  and  the 
church  and  the  use  of  the  part  belonging  to  the  Roman  Church  for  the 
improvement  of  the  Philippine  church,  we  may  reasonably  hope  that 
in  a  decade  the  agrarian  and  political  question  of  the  friars  in  the 
Philippines  will  have  been  completely  removed  from  among  the  obsta- 
cles to  good  government  with  which  the  Americans,  in  coming  to  the 
islands  and  assuming  control  thereof,  were  confronted. 

Arrangements  are  being  made  for  the  floating  of  the  bonds  neces- 
sary to  raise  the  money  to  pay  for  the  lands.  It  is  understood  that 
the  bonds  may  be  floated  at  4  per  cent  and  that  they  will  take  the  form 
of  bonds  payable  after  ten  and  before  thirty  years  at  the  option  of  the 
Government.  This  will  entail  an  interest  charge  upon  the  revenues 
of  the  Government  of  $290,000  a  year  in  addition  to  the  expense  of 
administration,  which  will  be  considerable.  It  is  not  thought  that  the 
income  from  the  islands  for  several  years  will  be  enough  to  meet  the 
actual  outgo,  but  with  a  restoration  of  normal  conditions — speaking 
for  myself  alone — I  hope  that  the  lands  will  sell  for  as  nuich  as  we 
have  paid  for  them.  Other  members  of  the  Commission  do  not  think 
so.  It  is  to  be  noted,  however,  that  the  insular  government  has  not 
entered  upon  the  purchase  of  these  lands  with  a  view  to  a  profitable 
inv(!stment,  but  that  it  is  knowingly  paying  a  considerable  sum  of 
mone}^  merely  for  the  purpose  of  ridding  the  administration  of  the 
government  in  the  islands  of  an  issue  dangerous  to  the  peace  and 
prosperit}^  of  the  people  of  the  islands. 


OF    THE    THILIPPINE    ISLANDS,    1900-1903.  503 

Following  the  policy  which  it  was  announced  Ijy  the  Vatican  would 
be  pursued,  the  bishops  who  were  Spanish  friars  in  all  the  dioceses  of 
the  islands  have  been  allowed  to  resign  and  their  places  have  been  filled 
by  American  Catholic  bishops.  I  can  not  state  with  too  much  emphasis 
the  satisfaction  I  feel  in  this  change.  It  means,  in  my  judgment,  the 
beginning  of  a  new  era  in  the  islands.  It  is  to  be  expected  that  a  large 
part  of  the  people  of  the  islands  will  continue  to  be  communicants  of 
the  Roman  Catholic  Church,  and  it  can  not  but  have  a  liberalizing 
effect  upon  them  that  their  bishops  shall  be  Americans  with  the  Ameri- 
can ideas  of  a  separation  of  church  and  state,  and  with  the  American 
respect  for  individual  rights  and  individual  liberties.  The  powerful 
influence  of  a  Roman  Catholic  bishop  in  his  diocese,  exercised  over  the 
priests  of  his  diocese,  can  not  but  be  productive  of  good  and  full  of 
cooperation  in  our  purpose  to  educate  these  people.  A  comparatively 
small  number  of  Spanish  friars  remains  in  the  islands,  and  it  is  to  be 
expected  that  the  American  bishops  shall  use  them  for  the  benefit  of 
the  Church,  though  it  is  hoped  that  there  will  be  no  departure  from 
the  policy  of  the  Church  announced  by  Cardinal  Rampolla  in  his  letter 
to  me,  in  which  he  said  that  it  was  not  the  intention  of  the  Roman 
Catholic  authorities  to  send  back  the  Spanish  friars  to  any  parishes  in 
which  the  majority  of  the  people  were  opposed  to  their  coming. 

I  am  officially  informed  by  the  apostolic  delegate  that  in  1898  the 
number  of  friars  in  the  islands  was  as  follows: 

Dominicans ^^^ 

Recoletos - ^^'^ 

Augustiniany '''*" 


Franciscans 


107 


Total -   I'OIS 

That,  by  December  1,  1902,  they  had  been  reduced  as  follows: 

Dominicans ^^' 

Recoletos ' " 

Augustinians - ^^^ 

Franciscans "" 

Total ^^^ 

And  that,  by  December  1, 1903,  they  have  been  still  further  reduced, 
so  that  the  number  in  the  islands  is  as  follows: 

Dominicans °^ 

Recoletos ^^ 

Augustiiiians "' 

Franciscans '*•* 


Total 


2-46 


504  KEPOKTS  OF  thp:  civil  government 

That  iiiiuiy  of  tho  monks  aro  old  and  inlirni,  in('a|)al)l(^  of  doing 
parish  or  any  other  work,  and  that  tho  Dominicans  have  renounced 
before  the  Holy  See  all  their  former  parishes  and  dedicate  themselves 
exclusively  to  teaching. 

Whatever  may  happen  during-  the  first  few  months  of  the  coming  of 
the  American  bishops,  it  is  certain  that  the  spirit  of  the  American 
Catholic  Church  is  so  different  from  that  of  the  Spanish  church  from 
a  political  standpoint,  that  the  influence  of  the  Spanish  friars  will 
gradually  wane  and  that  of  the  American  bishops  become  controlling. 
The  purchase  of  the  friars'  land,  the  division  of  the  proceeds,  the 
application  of  a  large  part  thereof  for  the  benefit  of  the  Philippine 
church,  the  establishment  of  the  American  hierarch}^  here,  and  the 
gradual  withdrawal  of  the  Spanish  friars,  all  will  bring  about  what 
we  so  much  desire — the  Americanizing  of  the  Roman  Catholic 
Church  in  the  Philippines.  The  attitude  of  the  Government  has 
been  very  much  criticised  by  some  American  Catholic  priests  and 
bishops,  and  it  has  been  charged  that  we  have  withheld  from 
Spanish  friars  the  protection  assured  to  them  by  the  treaty  of 
Paris,  and  that  we  have  been  neglectful  in  not  protecting  the 
interests  of  the  Roman  Catholic  Church  when  they  were  unjustly  or 
unlawfull}"  attacked  b}^  schismatics  under  Aglipay.  These  charges 
are  wholly  unfounded,  as  may  be  seen  by  an  examination  of  the  records 
taken  from  the  executive  files  showing  the  executive  decision  and 
action  with  respect  to  religious  matters,  which  is  hereby  appended  as 
a  part  of  this  report  and  marked  ' '  Exhibit  I. "  We  have  known  that  the 
great  majority  of  the  people  of  these  islands  were  strongly  opposed  to 
the  return  of  the  Spanish  friars  to  their  parishes,  and  we  have  felt 
certain  that  if  such  a  policy  were  adopted  and  the  friars  were  sent 
back  there  would  necessarily  follow  disturbances  of  the  peace  and 
discontent  among  the  people;  that  the  people  would  not  be  able  to 
distinguish  between  a  government  which  protected  friars  going  back 
of  their  own  volition  and  a  government  which  sent  the  friars  back  and 
maintained  them  in  their  pastorates.  Therefore  the  Government  has 
deprecated  and  still  deprecates  the  return  of  the  friars  to  their 
parishes,  and  has  made  representations  to  the  church  authorities  in 
these  islands  and  to  the  Vatican,  urging  that  the  Spanish  friars  be  not 
sent  back,  but  when  a  friar  has  lieen  sent  back,  the  Government  has 
never  refused  to  protect  him  in  his  rights  and  to  punish  those  who 
have  violated  his  rights.  There  is  the  utmost  religious  freedom 
enjoyed  in  these  islands,  and  no  one,  whether  Roman  Catholic,  Filipino 
Catholic,  or  Protestant,  is  disturbed  in  worshipping  God  as  he  chooses. 
The  instances  in  which  one  sect  has  interfered  with  another  are  com- 
paratively few,  but  in  every  case  the  Government  has  sought  to  punish 
the  offender  and  to  prevent  a  recurrence  of  the  trouble. 


OF    THE    PHILIPPINE    ISLANDS,    1900-100;}.  505 

BUSINESS    CONDITIONS. 

Business  conditions  in  Manila,  if  the  general  report  from  American 
merchants  can  be  trusted,  have  not  been  good  during  the  year.  The 
change  in  the  currency  from  a  silver  to  a  gold  .standard  has  lieen  in 
progress.  The  demand  for  Mexican  silver  in  this  business,  up  to  the 
time  of  writing  this  report,  in  other  places  has  been  sufficiently  great 
to  drain  the  islands  of  Mexican  silver,  though  there  arc  indications, 
as  this  is  written,  that  it  ma}^  become  profitable  to  import  Mexican 
silver  again.  Of  course  the  great  difficulty  in  getting  into  circulation 
the  new  coinage  grows  out  of  the  fact  that  Mexican  silver  is  worth 
less  than  the  Philippine  peso,  as  established  by  act  of  Congress,  b}' 
about  10  per  cent,  and  ever3^one,  business  men  or  not,  in  paying  his 
debts  and  making  his  purchases,  naturallj^  prefers  to  use  the  poorer 
currency  when  it  will  go  as  far  as  the  more  valuable,  because  of  the 
ignorance  of  the  people  as  to  the  real  difference  in  value.  The  steps 
taken  to  maintain  the  parity,  the  laws  passed,  and  the  accumulation  of 
a  reserve  fund,  I  shall  not  dwell  upon  because  they  will  all  be  contained 
in  the  report  of  the  secretary  of  finance  and  justice.  It  is  only  neces- 
sary' to  remark  here  that  the  advantages  of  the  new  coinage  will  not  be 
apparent  until  some  time  in  the  future;  not  until  January  1,  1901,  can 
the  Mexican  coin  be  demonetized  and  denied  a  legal-tender  value. 
The  policy  of  the  government  is  to  purchase  the  Spanish-Filipino 
coins,  of  which  there  are  some  ten  or  twelve  millions  of  dollars  in  the 
islands,  and  recoin  them  into  Filipino  pesos. 

Notwithstanding  the  statement  that  business  conditions  in  the  islands 
have  been  exceedingly  unfavorable,  and  in  spite  of  the  very  depressing 
agricultural  condition,  so  far  as  rice,  corn,  and  other  food  products  are 
concerned,  the  statistics  as  to  exports  and  imports  into  the  islands 
show  a  considerable  improvement  for  the  better  over  last  j^ear  and  a 
substantial  increase  in  the  production  and  exportation  of  hemp  and 
copra.  In  the  fiscal  year  ending  June  30, 1902,  the  total  imports  were 
$11,072,738,  but  of  this  $8,652,618  was  silver  coin.  The  total  exports 
for  the  fiscal  year  ending  June  30,  1902,  were  $27,157,087,  of  which 
exports  the  silver  coin  amounted  to  $2,123,200.  Excluding  silver  coin 
and  gold  to  the  value  of  $278,218  the  total  merchandise  imported  for  the 
fiscal  year  ending  June  30,  1902,  amounted  to  §32,111,812,  whereas  the 
total  merchandise  exported,  aside  from  silver  coin,  already  mentioned, 
and  gold  valued  at  $806,208,  amounted  to  $23,927,679.  In  other  words, 
the  balance  of  trade  against  the  islands  last  year  was  $8,211,163.  For 
the  year  ending  June  30,  1903,  the  total  imports  were  $35,099,211,  the 
silver  coin  in  which  amounted  to  $2,077,137,  and  gold  valued  at  $50,222. 
The  total  imported  merchandise,  therefore,  for  the  year  ending  June 
30, 1903,  was  $32,971 ,882,  or  a  gain  in  the  entire  year  of  $830,010.  The 
total  exports  for  the  year  ending  June  30, 1903,  amounted  to  $39,668,366, 


50fi 


EEPO-RTS    OF    THE    CIVIL    GOVERNMENT 


of  which  $(!.;?()(!, i(»t)  was  silver  and  |1S(),4S()  o-old,  leaving-  a  bahmce  of 
morchaiuliso  exported  of  $38, 1:21, 780,  which  makes  a  bahmce  of  trade 
in  favor  of  the  ishmds  for  the  year  endinjj-  June  30,  l;)03,  of  $149,898. 
It  will  he  seen  that  there  is  an  increase  in  the  exports  for  the  year 
ending  June  30,  1903,  over  those  of  1902,  of  $9,194,101.  The  total 
foreign  business  of  the  islands,  excluding  coin,  for  the  year  ending 
June  30,  1902,  was  $50,069,521,  while  the  total  foreign  trade  for  the 
3'ear  ending  July  30,  1903,  was  $66,093,002,  or  a  gain  of  $10,024,141. 
It  should  bo  borne  in  mind  in  respect  to  all  these  statements  that 
they  do  not  include  any  importations  for  the  Army  of  the  United  States 
which  pay  no  dut}'  and  are  not  included  in  the  statistics.  The  com- 
parative amounts  of  the  various  commodities  exported  during  the  two 
years  are  shown  by  the  following  table: 


Article  of  export. 


1902. 


Hemp 

Copra 

Sugar  

Tobacco,  cigars,  and  cigarettes 
Miscellaneous 

Total 


$15,841,316 
1,001,656 
2,761,432 
2,501,367 
1,821,908 


23,927,679 


121,701,575 
4, 473, 029 
3, 955, 568 
1,882,012 
1,109,596 


33,121,780 


The  decrease  in  tobacco  was  due  to  increase  of  duties  on  tobacco  in 
Australia,  Java,  and  Japan.  The  business  of  the  United  States  exports 
and  imports  is  also  show^n  b}^  the  following  table,  excluding  always 
the  United  States  Government  importations: 


Imports  from  United  States,  excluding  United  States  Government  imports. 
Exports  to  United  States 


Total  business,  exclusive  of  United  States  Government  imports. 
Increase  total  business 


1902. 


84, 035, 243 
7, 691,  743 


11,726,986 


13,944,098 
13,863,059 


17,807,157 
6, 080, 171 


The  imports  of  rice  show  the  depressed  condition  of  the  rice  culture 
in  the  islands.  For  the  fiscal  year  ending  June  30,  1900,  the  amount 
of  rice  imported  was  $3,113,423;  for  the  next  fiscal  year,  1901,  it  was 
$5,490,958;  for  the  fiscal  year  of  1902,  $6,578,481,  and  for  the  fiscal 
year  of  1903,  it  was  $10,061,323.  It  is  hoped  that  this  abnormal 
importation  of  rice  will  be  unnecessaiy  next  year,  and  that  the  balance 
of  trade  in  favor  of  the  islands  will  increase. 

Some  reason  for  the  complaints  in  respect  to  business  conditions  in 
the  islands  which  come  from  the  American  merchants,  may  be  found 
in  certain  especial  circumstances  with  respect  to  the  American  trade 
in  the  islands  that  are  not  a  legitimate  cause  for  complaint.  When 
the  Americans  first  entered  the  islands,  enterprising  business  men  fol- 
lowed the  army  and  established  what  were  called  trading  companies, 
which  naturally  catered  to  the  demand  caused  by  the  presence  of  the 


OF    THE    PHILIPPINE    ISLANDS,    1900-1003.  507 

army  and  the  Americans  that  followed  in  its  wake.     The  army  was 
rapid!}'  increased,  until  during-  the  year  1900  there  were  in  the  Archi- 
pelago upward  of  70,000  troops  distributed  through  the  islands  in  600 
posts.      This  presented  an  opportunity  for  the  sale  of  liquors  and 
other  goods  likely  to  be  purchased  by  soldiers,  which  continued  for 
two  j^ears  or  more.     The  army  has  now  been  reduced  from  70,000 
men  to  a  little  more  than  15,000  Americans,  and  the  number  of  posts 
has  been   reduced  from  600  to  a  few  more  than  100.      In  addition  to 
this  the  Commission  has  passed  an  act  forbidding  the  sale  of  liquor 
within  2  miles  of  an  army  reservation,  which  it  is  said  has  much 
interfered  with  the  canteen  trade.     The  enormous  profits  which  were 
reaped  by  the  American  trading  companies  (of  which  there  are  some 
half  a  dozen  in  Manila),  growing  out  of  the  demand  produced  by  the 
presence  of  70,000  soldiers,  fell  off  rapidly  as  the  changes  which  I 
have  indicated  took  place,  and  to  this,  more  than  any  other  one  cause, 
is  due  the  interference  with  large  returns  upon  much  of  the  American 
capital  invested  in  the  islands.     I  venture  to  say  that  the  opportu- 
nities which  the  American  merchants  have  had  for  making  quick  and 
large  profits  out  of  the  American  soldier  has  had  a  bad  effect  upon 
American  methods  of  doing  business  and  upon  the  attitude  of  most  of 
the  American  merchants  in  these  islands.     It  has  made  them  feel  inde- 
pendent of  the  Filipino  demand  for  American  commodities.     It  has 
lessened  the  necessity  for  effort  on  their  part  to  create  a  demand  among 
the  Filipino  people  for  those  articles  which  the  United  States  can  make 
and  ought  to  sell  in  these  islands.     The  natural  hostility  of  the  Ameri- 
can business  men  growing  out  of  the  war  was  not  neutralized  by  a 
desire  and  an  effort  to  win  the  patronage  and  good  will  of  the  Filipino. 
The  American  business  men  controlled  much  of  the  advertising  in 
the  American   papers,  and   the   newspapers   naturally  reflected  the 
opinions  of  their  advertisers  and  subscribers  in  the  advocacy  of  most 
unconciliatory  measures  to  the  native  Filipinos  and  in  decrying  all 
efforts  of  the  government  to  teach  Filipinos  how  to  govern  by  asso- 
ciating the  more  intelligent,  of  them  in  the  government.     One  of  the 
first  principles  of  good  business  success  is  not  to  antagonize  unneces- 
sarily those  whose  patronage  you  seek  and  must  depend  on  for  the 
building  up  of  your  business.     The  number  of  Americans  that  the 
American  merchants  or  any  merchants  in  these  islands  can  count  upon 
for  business  demands  is  never  likely  to  exceed  20,000.     The  number 
of  Filipinos  whose  trade  might  make  a  most  lucrative  business  in  these 
islands  is  7,000,000.     It  would  seem  to  be  the  wiser  policy  on  the  part 
of  the  American  merchant  to  cultivate  the  good  will  of  those  potential 
patrons  rather  than  through  the  press  and  in  society  and  in  all  other 
ways  to  antagonize  them,  to  give  the  impression  of  bitter  hostility  and 
racial  prejudice  toward  them  too  deep  to  be  overcome.     Neither  the 
German  nor  the  English  nor  even  the  Spanish  merchants  have  allowed 


508  REPORTS    OF    THE    OTVTL    GOVERNMENT 

themsolvcs  to  bo  i^ut  in  this  iittitude.  Indeed,  there  jiic  ;i  few  Aineri- 
can.s  wlu)  have  pursued  a  ditlerent  policy  with  respect  to  the  Filipinos, 
to  their  profit.  I  venture  to  predict  that  as  the  American  business 
men  of  these  islands  become  more  conservative,  as  more  capital  comes 
in,  the  utter  fatuousness  of  the  present  attitude  of  a  majority  of  the 
American  business  men  of  to-day  of  these  islands  will  become  apparent. 
There  is  an  immense  iield  here  for  the  sale  of  American  goods. 

The  Filipinos  are  imitative,  take  quickl}^  to  new  things,  may  easily 
be  taught,  as  their  wealth  shall  grow,  to  regard  American  products, 
which  are  now  luxuries  to  them,  as  necessities.  The  sale  of  cotton 
goods  is  almost  wholly  with  the  English  houses  to-day.  The  handling 
of  hemp,  which  is  the  largest  export  of  these  islands,  is  almost  wholly 
confined  to  foreign  houses.  There  is  not  the  slightest  reason  wli}^  this 
business  should  not  be  done  largely  by  Americans,  especially  in  view 
of  the  fact  that  the  United  States  is  the  largest  purchaser  of  hemp  in 
the  world.  It  requires  the  investment  of  a  very  considerable  capital, 
the  construction  of  warehouses  in  the  various  hemp  provinces,  and  the 
establishment  of  f riendl}^  relations  with  the  hemp  growers  and  buyers 
in  each  province.  The  American  business  man  in  the  islands  has 
reall}',  up  to  this  time,  done  very  little  to  make  or  influence  trade. 
He  has  kept  close  to  the  American  patronage  and  has  not  extended 
his  efforts  to  an  expansion  of  trade  among  the  Filipinos.  Until  this 
is  done  and  more  American  capital  is  brought  here  for  the  purpose, 
we  can  not  hope  that  the  imports  from  the  United  States  to  the  islands 
will  be  increased  in  very  large  proportion. 

PROPOSED   OFFICIAL   INSPECTION    AND    CLASSIFICATION   OF   HEMP. 

About  the  beginning  of  this  year  complaints  reached  the  Commission 
that  the  hemp  being  exported  from  the  islands  was  of  very  inferior 
quality  and  that  there  was  fraud  in  its  packing.  The  Secretary  of 
Agriculture  of  the  United  States  recommended  investigation  and 
action,  suggesting  that  if  the  Manila  hemp  continued  to  be  of  such 
poor  quality,  purchasers  and  users  of  fiber  would  be  driven  to  other 
fibers  and  countries.  It  was  recommended  that  the  hemp  exported  be 
officially  inspected  and  classified  and  carry  the  mark  of  the  Govern- 
ment upon  it  to  indicate  its  quality.  A  bill  was  drawn  providing  for 
official  inspection  and  classification,  and  it  was  submitted  to  discussion 
in  a  public  session.  The  pul)lic  discussion  satisfied  the  Commission 
that  little  if  any  good  could  be  brought  about  by  such  legislation. 
Ev(n-yone  who  came  to  discuss  the  bill  was  opposed  to  it  as  it  was 
drawn.  It  was  insisted  that  the  only  thing  possible  was  to  have  an 
inspection  which  should  prevent  false  packing,  but  that  governmental 
classification  would  ])e  not  only  impractical )le  but  a  serious  obstacle  to 
business.  It  further  developed  that  so  far  as  fraud  was  concerned 
the  purchasers  in  America  were  conipletel}'  protected  by  the  ordinary 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  509 

terms  of  purchase  which  enabled  them  to  reject  the  hemp  or  to  recoup 
at  once  from  the  price  for  any  faihirc  in  quality.  When  the  amended 
bill  was  drawn  providing  onl}^  for  the  inspection  into  the  packing  and 
for  the  punishment  of  false  packing  and  of  fraud  in  baling,  a  repre- 
sentative of  the  American  hemp  purchasers  stated  that  the  bill  would 
do  them  no  good  because  it  was  not  radical  enough.  So  far  as  we 
were  able  to  determine,  the  bill  which  was  desired  by  the  American 
merchants  was  a  bill  which-  should  forbid  the  exportation  of  hemp 
of  poor  qualit}",  and  should  impose  such  restrictions  on  the  method 
of  raising  and  cleaning  hemp  as  to  insure  the  production  of  only 
good  fiber  at  a  reasonable  price.  The  discussion  showed  that  much 
poor  hemp  was  exported  for  use  in  making  paper  and  hats  in  Japan 
and  in  other  countries.  Because  of  the  high  prices  paid  for  poor 
hemp,  the  fault}^  cleaning  of  hemp  was  much  more  profitable  than 
the  preparation  of  the  finer  qualities.  Inferior  qualities  of  hemp  are 
produced  by  using  a  serrated  knife  in  stripping  the  fiber.  Men,  women, 
and  children  can  use  a  serrated  knife  for  hemp  cleaning,  whereas  the 
knife  with  the  even  blade  requires  the  strength  of  an  adult  man.  A 
law  forbidding  the  use  of  a  serrated  knife  in  cleaning  hemp,  or  pre- 
venting the  export  of  hemp  thus  cleaned,  would  deprive  man}^  people 
of  a  means  of  livelihood  in  the  islands  and  would  savor  much  of  pater- 
nalism; nor  is  a  law  of  this  kind  necessary  if  purchasers  use  proper 
discretion  in  buying  the  qualit}'  which  they  desire.  The  object  of  the 
persons  asking  legislation,  when  analyzed,  seems  to  be  rather  to  secure 
a  law  which  shall  hold  the  price  of  good  hemp  down.  The  bill  proposed 
has,  therefore,  been  allowed  to  lie  on  the  table,  and  it  is  unlikely  that 
any  further  action  will  be  taken  in  the  matter.  The  high  price  of  hemp 
always  increases  the  production  of  inferior  qualit3^  This  is  a  natural 
economic  result;  if  the  dealers  do  not  desire  to  pay  high  prices  for  the 
inferior  quality,  their  refusing  to  do  so  will  soon  bring  up  the  quality 
of  hemp.  The  report  of  the  committee  on  the  bill,  consisting  of  Gen- 
eral Wright,  is  hereto  appended,  and  marked  Exhibit  J. 

SUGAR. 

It  will  be  observed  that  the  value  of  the  sugar  exports  from  the 
islands  for  the  fiscal  year  ending  Juno  30,  1903,  was  $3,955,568,  an 
increase  of  ^1,194,136  over  the  value  of  the  exports  of  sugar  for  the 
fiscal  year  ending  June  30,  1902.  This  increase  was  the  natural  result 
of  a  betterment  of  conditions  as  to  tranquillity.  More  than  that,  the 
planters  of  Negros,  where  the  increase  chiefly  was,  had  used  greater 
efforts  than  the  landowners  of  the  other  parts  of  the  islands  to  import 
carabao  to  take  the  place  of  tlie  carabao  destroyed  l)y  the  rinderpest. 
The  increase  in  the  exports,  however,  should  not  be  taken  as  an  evi- 
dence of  prosperity  in  sugar  pi-oduction.  I  ai)pen(l  a  petition  of  the 
Agricultural  Society  of  Panay  and  Negros,  marked  "Exhibit  K,"  in 
23181—04 33 


510  REPORTS    OF    THE    OIVTL    GOVERNMENT 

respect  to  the  pfoductioii  of  siii^iir  in  the  PhilippiiK^s,  to<!;other  Avith  n 
stutenient  made  by  the  collector  of  custoiu.s  at  lloilo,  Colonel  Colton, 
who  has  looked  into  the  matter  with  great  thoroughness,  and  whoso 
op})ortunities  for  exact  information  are  great,  because  lloilo  is  the 
port  through  which  almost  all  the  sugar  in  the  islands  is  exported. 
The  statement  of  Colonel  Colton  is  marked  "  Exhibit  L. "  I  also  append 
a  statement  made  b\^  Governor  Wright  from  data  furnished  him  on 
the  same  general  subject,  marked  "Exhibit  M." 

It  may  be  deduced  from  these  sources  of  information  that  the  sugar- 
production  was  first  introduced  into  the  Philippine  Islands  in  the  3' ear 
185(),  and  that  the  first  otiicial  record  of  exportation  is  of  the  year 
1859,  when  5,427  tons  of  raw  sugar  were  exported  from  lloilo.  In  1809, 
7,814  tons  were  exported;  in  1879,  47,025  tons;  in  1889,  112,007  tons; 
in  1899, 154,402,  and  the  largest  exportation  in  any  one  year  was  in  1892, 
when  165,897  tons  of  sugar  were  exported.  In  1901  the  exportation 
fell  to  34,500  tons.  In  the  early  years  the  sugar  production  was  car- 
ried on  by  the  use  of  wooden  rolling  mills  worked  by  cattle,  a  process 
resulting  in  a  loss  of  from  40  to  50  per  cent  of  the  sugar.  Some  of 
these  mills  are  still  in  use,  but  most  of  them  have  been  supplanted  by 
steam  mills  which  extract  from  3^  to  7i  tons  of  juice  per  day  with  a  loss 
of  from  20  to  40  per  cent  of  sugar.  The  sugar  produced  is  classified  as 
follows:  Class  No.  1  contains  88  per  cent  of  saccharine;  No.  2  contains 
85i  per  cent;  No.  3,  81  per  cent,  and  damp  70  per  cent.  The  various 
qualities  of  sugar  are  produced  in  about  the  following  proportions: 
No.  1  quality,  one-fourth;  No.  2,  three-sixteenths;  No.  3  and  damp, 
nine-sixteenths.  Sugar  polarizing  as  high  as  92  per  cent  is  produced 
by  the  old  wooden  mills  in  some  localities  of  Panay.  The  expense  of 
production  was  a  very  large  percentage.  Under  ordinar}^  circum- 
stances Negros  should  produce  150,000  tons  and  Panay  50,000  tons  of 
sugar  annually  on  land  now  under  cultivation.  Those  who  have  had 
experience  in  the  business  assert  that  with  suitable  machinery,  trans- 
portation facilities  and  capital,  the  production  could  be  doubled  with- 
out extending  the  area  of  land  under  cultivation;  that  at  present  there 
are  no  means  of  transportation  in  Negros  except  for  sugar  brought  to 
the  market  b}^  lighters  from  the  estates  of  the  owners,  from  5  to  14 
miles,  depending  solely  upon  the  condition  of  the  roads,  which  is  usually 
bad.  The  actual  cost  of  producing  sugar  which  is  marketed  at  lloilo, 
per  ton,  is  as  follows:  Tilling  and  planting,  $22;  cutting  and  carrying 
to  mill,  milling,  bagging  and  shipping,  $18,  and  delivering,  $6,  mak- 
ing a  total  of  $50  Mexican.  These  figures  exclude  material  items  like 
interest,  investment,  taxes,  or  rents,  which  are  hard  to  estimate.  The 
present  selling  price  of  sugar  in  the  lloilo  market,  based  on  the  price 
in  foreign  markets,  is  about  $04  Mexican  per  ton,  which  allows  little 
or  no  profit  on  the  sugar  from  the  most  favorably  located  estates,  and  is 
considerably  less  than  the  cost  of  production  on  the  interior  estates. 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  511 

The  following  table  shows  the  quantity  and  value  of  sugar  exported 
through  the  port  of  Iloilo,  by  fiscal  3'ears,  since  American  occupation: 


Year. 


1899. 
1900. 
1901. 
1902. 
1903. 


Total. 


Number  of 
pounds. 


96,831,930 
116,2i'i8,92'2 

77, 089, 391 
135. C87, 751 
226;  056, 793 


651, 924, 787 


Value. 


81,873,183 
2, 103, 344 
1,471,281 
2,471,820 
3, 649, 536 


11,569,164 


At  first  glance  it  would  seem  from  the  returns  of  1893  that  the 
sugar  planters  were  subject  to  congratulations  upon  the  substantial 
increase  both  as  to  price  and  quantity  of  their  product,  and  the  appar- 
ently improved  conditions.  As  a  matter  of  fact,  however,  owing  to 
the  increased  cost  of  labor  and  the  extraordinary  expenditure  for  ani- 
mals to  replace  those  killed  by  the  rinderpest,  the  planters  are  more 
deeply  in  debt  at  the  close  of  the  1903  season  than  at  an}^  previous 
time  in  their  history,  and  if  it  had  not  been  for  the  low-ruling  rate  of 
exchange  enabling  bu3"ers  to  pa}^  more  in  Mexican  currency  on  prac- 
tically the  same  gold  prices  as  last  3^ear,  a  large  percentage  of  the 
planters  would  have  been  entirely  ruined  and  compelled  to  abandon 
their  estates.  The  planters  have  been  steadily  losing  ground  since 
1899,  and  have  only  been  encouraged  to  continue  the  operation  of 
their  estates  by  the  hope  each  year  that  their  products  would  be 
admitted  to  the  markets  of  the  United  States  at  a  much  more  favor- 
able rate  of  duty  than  is  now  imposed.  The  shipments  to  the  United 
States  have  been  very  small;  71,000,000  pounds  of  sugar  were  exported 
last  5'^ear  in  vessels  Avhich  cleared  for  ,the  Delaware  Breakwater  ' '  for 
orders."  A  very  small  proportion  of  this  was  shipped  into  the  United 
States,  the  larger  portion  being  carried  into  Canada  or  England,  and 
all  the  sugar  entering  the  United  States,  except  one  cargo  which  was 
allowed  to  enter  free  during  the  brief  period  when  there  was  no 
import  tax  on  imports  from  the  Philippine  Islands,  resulted  in  a  heavy 
loss  to  the  shippers.  The  islands  of  Pana}^  and  Negros  are  among  the 
most  thickly  populated,  and  the  inhabitants  and  business  interests 
depend  directly  or  indirectly  upon  the  sugar  industry,  which  is  at  this 
time  in  an  exceedingly  precarious  condition,  and  unless  something  is 
done  by  Congress  to  relieve  the  situation  there  must  be  a  total  indus- 
trial collapse  in  those  provinces.  Were  there  admitted  to  the  United 
States  three  or  four  hundred  thousand  tons — and  there  is  no  likelihood 
that  in  the  near  future  the  exports  of  sugar  from  the  islands  to  the 
United  States  will  reach  any  such  sum — it  would  not  have  any  efl'ect 
upon  the  price  of  sugar  in  the  United  States,  but  it  would  greatly 
increase  the  prosperity  of  the  two  important  provinces  named.  Sugar 
is  also  raised  in  Pampanga,  Cavite,  and  Laguna,  but  not  so  successfully 


512  REPORTS    OF    THE    CIVIL    GOVERNMENT 

;is  in  NogTos  iiiid  I'mumv.  The  conditions  pivvailino-  in  tlio  islands  of 
Noi>i-os  and  Tanay  are  typical  of  those  throuo'hout  the  islands.  The 
growth  (>l'  suuar  in  Formosa  is  apt  to  interfere  very  largely  with  the 
sugar  trade  of  Japan,  which  already  is  hampered  by  a  heavy  duty. 

TOBACCO. 

The  falling  off  in  the  production  of  leaf  tobacco  has  already  been 
alluded  to,  as  well  as  the  causes  for  the  same.  I  can  not  too  strongly 
urge  the  necessit}'  for  the  reduction  of  the  Dingley  tariff  in  its  appli- 
cation to  goods  imported  from  the  Philippine  Islands  to  25  per  cent 
of  the  rates  therein  imposed.  I  am  confident  that  neither  in  the  sugar 
market  nor  in  the  tobacco  market  will  the  cfl'ect  of  the  amount  to  be 
introduced  be  materially  injurious  to  any  interest  in  the  United  States, 
Avhile  at  the  same  time  it  will  be  of  the  greatest  importance  to  the 
prosperity  of  the  islands,  and  will  be  a  most  convincing  argument 
with  the  people  of  the  Archipelago  to  show  the  real  interest  that  the 
people  of  the  United  States  feel  in  the  welfare  of  the  Filipino  people. 

THE   LABOR   QUESTION. 

American  and  foreign  business  men  continue  to  complain  of  the 
difficulty  in  securing  good  labor.  This  question  was  discussed  in  my 
last  annual  report,  and  nothing  has  occurred  since  that  time  to  change 
my  views.  I  think  it  would  be  a  great  political  mistake  to  admit  the 
Chinamen  freel}^  into  these  islands  as  laborers.  I  am  convinced  that 
the  Filipino,  as  conditions  settle,  can  be  made  a  good  laborer;  not  so 
good  as  the  American,  not  so  good  as  the  Chinaman,  but  one  with 
whom  it  will  be  entirely  possible  to  carry  on  great  works  of  construc- 
tion. We  are  now  emplo\dng  2,500  Filipino  laborers  on  the  Benguet 
road,  and  our  engineer  reports  that,  wages  considered,  they  are  doing 
good  work.  We  had  an  unfortunate  experience  in  obtaining  labor  for 
this  road,  due  to  a  misunderstanding  with  the  proposed  laborers,  and 
to  the  fact  that  the  men  were  obtained  from  an  undesirable  class  in 
Manila  and  the  neighboring  provinces.  It  was  fairl}^  inferable  from 
the  facts  that  the  persons  who  agreed  to  furnish  the  laborers,  either 
intentionally  or  unintentionally,  misled  the  laborers  as  to  the  terms 
upon  which  they  should  be  employed.  I  append  hereto,  as  Exhibit  N, 
the  report  of  the  investigation  made  by  the  supervisor  of  ffscals  con- 
cerning the  failure  of  the  first  attempt  to  employ  large  numbers  of 
laborers  on  the  Benguet  road.  Since  that  time,  however,  the  super- 
intendent has  been  able  to  get  Filipino  laborers  from  all  over  Luzon, 
and,  as  already  stated,  the  number  is  2,500  and  it  is  growing.  The 
Atlantic,  Gulf  and  Pacific  Company,  which  is  engaged  in  building  the 
great  Manila  port  works,  needing  in  its  employ  from  500  to  1,000 
men,  has  adopted  the  system  of  making  the  laborers  comfortable  and 
at  home,  and  now  can  procure  more  labor  than  it  needs,  and  good 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  513 

labor,  too.     The  following  letters  from  the  vice-president  of  the  com- 
panj'  seem  to  leave  no  doubt  upon  this  point: 

Manila,  July  2,  1903. 

Sir:  Answering  your  esteemed  verbal  inquiry  as  to  our  success  with  the  Filipino 
labor,  we  beor  leave  to  state  as  follows: 

First.  We  believe  that  Filipino  labor  can  successfully  be  used.  We  are  employing 
about  1,000  Filipinos,  which  is  a  practical  demonstration  that  this  statement  is  not 
a  theory. 

Second.  To  successfully  employ  Filipino  labor  is,  to  the  American  employer  of 
labor,  a  new  business,  which  has  to  be  learned.  If  he  can  not  learn  it  he  can  not  do 
business  in  the  Philippine  Islands. 

Third.  In  general,  the  Filipinos  have  to  be  taught  how  to  work.  This  requires  a 
considerable  proportion  of  intelligent  high-grade  American  foremen  and  mechanics. 

Fourth.  The  way  to  keep  the  Filipino  laborer  permanently  in  one's  employ  is  to 
so  arrange  his  surroundings  that  he  is  better  off  and  more  contented  there  than  any- 
where else.  This  we  have  attained  by  means  of  providing  homes  for  the  Filipinos 
and  their  families;  also  amusements,  including  Sunday  fiestas,  and  schools  where 
their  children  may  be  educated. 

Fifth.  We  are  opposed  to  the  introduction  of  the  Chinese.  The  only  argument 
that  we  can  see  in  its  favor  is  that  it  may  somewhat  expedite  the  development  of 
the  resources  of  the  islands.  This  temporary  advantage  is,  we  believe,  overbalanced 
and  overwhelmed  by  the  ultimate  injury  to  both  the  Americans  and  natives  in  the 
islands. 

Sixth.  We  believe  that  the  greatest  need  of  the  islands  is  the  abolition  of  the 
Dingley  tariff  as  far  as  it  applies  to  the  Philippines.  We  want  the  American  market, 
not  the  Chinese  laborer. 

Very  respectfully,  Atlantic,  Gulf  and  Pacific  Company, 

By  H.  Krusi,  Vice-President. 

Hon;  Wm.  H.  Taft, 

Governor  Philippine  Archipelago,  Manila,  P.  I. 

Manila,  November  12,  1903. 
Sir:  Referring  to  your  esfeemed  verbal  request  to  state  whether  our  subsequent 
experience  with  the  labor  situation  here  is  in  accord  with  our  letter  dated  J  uly  2,  on 
this  subject,  would  state  that  our  experience  since  that  time  has  confirmed  us  in  our 
opinion  therein  advanced.  We  are  having  no  difficulty  whatsoever  with  our  Fili- 
pino labor,  who  are  doing  the  bulk  of  the  work  under  our  harbor  contract. 

The  well-known  civil  engineer,  Maj.  C.  F.  Case,  was  recently  at  our  quarry,  and 
can  advise  you,  if  desired,  as  to  the  state  of  affairs  there. 

I  wish  to  strengthen  the  statement  made  in  my  former  letter  with  reference  to  the 
use  of  American  foremen  and  mechanics.  These  men  are  the  backbone  of  our  organi- 
zation, and  a  certain  proportion  of  them  are  absolutely  essential  to  the  success  of  any 
enterprise  requiring  labor.  They  are  recjuired  both  to  lead  and  instruct  the  Filipinos. 
They  must  be  practical  men  and  not  afraid  to  work  with  their  own  hands.  Our 
experience  is  that  about  8  per  cent  of  American  foremen  and  mechanics  is  advisable. 
We  are  firmly  convinced  that  the  best  interests  of  the  Philippines  demand  the  use 
of  Filipino  and  American  labor,  to  the  exclusion  of  the  Chinese. 
Very  respectfully, 

Atlantic,  Gulf,  and  Pacific  Company, 
By  H.  Krusi,  Vice-President. 
Hon.  Wm.  H.  Taft, 

divil  (■'orernor  Philippine  Archipchujo,  Manila,  P.  I. 

I  also  append  the  report  of  Captain  Couden,  of  the  United  States 
Navy,  upon  the  capacit}'^  of  the  Filipino  for  labor.     He  has  charge  of 


514  REPORTS    OF    THE    CIVTL    OOVERNMENT 

tlu>  liirjre  number  of  laborers  employed  at  the  Cavite  Navy-Yard.  It 
its  marked  Exhi])it  O. 

The  new  oleetric  street  railway  company  of  Manila,  which  is  just 
beginning  its  work  of  construction,  has  had  no  difficulty  in  securing 
all  the  labor  it  desires. 

The  Counnission  employed  Messrs.  Norton  and  Drew  as  railroad 
engineers  to  make  a  reconnaissance  survey  for  trunk  lines  through  the 
island  of  Luzon.  This  report  has  been  published,  but  will  be  hereto 
appended,  for  the  sake  of  convenience,  as  Exhibit  P.  Mr.  Norton  is 
(juite  discouraging  in  regard  to  the  possibility  of  securing  native  labor 
for  the  construction  of  railroads.  I  think  that  the  facts  do  not  justify 
his  position  in  this  respect.  The  Manila  and  Dagupan  Railway  was 
built  with  native  labor,  and  the  extensions  which  are  now  being  con- 
structed under  franchises  granted  by  the  Commission  are  being  built 
by  the  same  labor.  It  is  possible  that  were  a  very  general  S3^stem  of 
railroad  construction  begun  all  at  once  in  the  islands,  the  supply  of 
laborers  here  would  be  found  deficient.  In  such  contingency  the  emer- 
gency could  be  met  by  special  legislation  permitting  use  of  coolie 
labor  for  a  short  period;  but  I  anticipate  no  such  necessity. 

There  is  more  importation  of  Japanese  labor,  but  it  has  not  as  j^et 
reached  any  proportion  likely  to  have  an  effect  upon  the  labor  market. 

THE    EFFECT   OF   LABOR   ON   THE   INVESTMENTS   OF   CAPITAL. 

There  is  no  doul)t  that  the  iteration  and  reiteration  of  the  deficiency 
in  the  supply  of  labor  in  the  Philippine  Islands  have  had  the  effect  of 
frightening  American  investors  of  capital  from  coming  into  the  islands. 
The  Commission  is  strongly  desirous  of  encouraging  American  capital 
to  come  here,  but  it  should  be  noted  that  if  American  capital  declines 
to  come  that  English,  Belgian,  and  other  foreign  capital  is  merely 
awaiting  the  franchises  which  are  requested  for  railroad  and  other 
constructive  enterprises,  and  that  it  will  be  the  duty  of  the  Commission 
to  grant  such  franchises  for  the  benefit  of  the  islands.  The  owners  of 
English  capital  already  invested  in  the  Manila  and  Dagupan  Railway 
have  accepted  two  franchises  granted  for  the  construction  and  opera- 
tion of  branches  for  that  railway,  and  are  very  anxious  to  secure 
other  franchises  extending  their  railway  in  other  directions.  They  are 
sufficiently  familiar  with  the  possibility  of  securing  native  labor  and 
of  making  it  available  for  reasonably  economical  construction  of  their 
works  not  to  be  frightened  away  from  the  accepting  of  such  franchises 
and  making  such  investments.  A  reluctance  on  the  part  of  American 
investors  will  certainly  lead  to  the  acceptance  of  their  propositions. 
It  seems  to  me  that  this  much  ought  to  be  said  by  way  of  warning 
American  investors  that  when  later  on  they  shall  come  into  the  islands, 
and  shall  find  foreign  capital  strongly  intrenched  in  many  profitable 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  515 

enterprises,  they  will  have  only  themselves  to  blame  for  a  failure  to 
seize  the  opportunity  when  it  was  offered  them. 

The  dispositio'n  to  harken  to  pessimistic  maligners  of  conditions  in 
the  Philippines  may  prove  to  be,  in  this  sense,  quite  costly. 

RAILROAD   AND   OTHER   CONSTRUCTION. 

The  political  conditions  in  the  islands  are  now  such  as  to  make  the 
time  ripe  for  a  period  of  great  construction.  For  the  next  decade 
railroads,  canals,  and  steamship  companies  should  revolutionize  the 
interior  trade  of  the  islands,  and  should  have  a  most  marked  effect 
upon  the  export  trade.  There  are  a  number  of  short  lines  of  railroads 
that  could  be  constructed,  and  doubtless  will  be,  without  governmental 
aid,  but  there  are  other  lines  of  longer  and  more  difficult  construction 
which  should  at  once  be  begun,  but  which  we  can  not  expect  to  have 
begun  vmless  there  is  actual  governmental  financial  encouragement. 
For  this  reason  it  seems  to  me  wise  that  the  Commission  be  authorized, 
with  the  approval  of  the  Secretary  of  War  and  the  President  of  the 
United  States,  to  enter  into  contracts  of  guaranty  with  railroad  com- 
panies to  whom  a  franchise  for  the  construction  of  a  road  shall  be 
granted  by  which  an  income  of  not  exceeding  4  per  cent,  and  probably 
not  exceeding  3  per  cent,  shall  be  guaranteed  on  the  investment,  the 
amount  of  which  shall  l^e  fixed  in  the  law.  This  method  of  financial 
encouragement  is  much  to  be  preferred  to  the  granting  of  lands  or 
other  forms  of  governmental  subsidy,  and  I  recommend  to  the  Com- 
mission that  in  its  report  to  the  Secretary  of  War,  to  be  transmitted  to 
Congress,  it  ask  for  the  granting  of  such  power.  It  is  very  possible 
that  under  the  Philippine  act,  as  now  passed  such  power  exists,  but  it 
would  greatly  aid  in  securing  public  confidence  if  this  power  were 
expressly  granted. 

HEALTH. 

The  cholera,  which  began  in  March,  1902,  has  continued  in  the  islands 
down  to  the  time  of  writing.  The  number  of  cases  was  something  over 
150,000  and  the  number  of  deaths  something  over  100,000.  The  num- 
ber of  deaths  and  cases  has  been  very  much  smaller  in  the  city  of 
Manila  than  in  the  provinces  which  the  disease  has  visited.  This  is 
due  to  the  fact  that  Manila  has  a  water  supply  which  has  been  care- 
fully guarded  from  ]wllution.  There  is  a  great  need  of  improvement 
in  the  water  supply  of  the  smaller  towns.  The  Commission  has 
directed  the  consulting  engineer  to  investigate  the  cost  of  a  plant  for 
driving  deep  or  artesian  wells  in  each  province  of  the  islands. 

Few  cases  of  plague  have  been  found  or  reported  this  last  year  in 
Manila.  An  outbreak  of  plague  occurred  in  Cebu,  disclosing  an 
unsanitai-y  condition  in  that  city  that  required  some  radical  measures 
on  the  part  of  the  board  of  health  to  remedy. 


516  RKPOKTS    OF    THE    OTVTL    GOVERNMENT 

There  is  no  bureau  of  government  more  important  in  the  devel- 
opment of  these  ishinds  than  that  which  is  charged  with  looking 
after  the  health  of  (he  inhabitants.  The  islands,  though  they  contain 
8,000.000  people,  are  sparsely  settled.  The  natural  increase  by  births 
should  be  far  greater.  The  immense  loss  of  life  from  infantile  diseases, 
before  the  age  of  6  months  is  reached,  is  one  reason  why  the  increase 
of  population  is  slow.  It  is  within  the  function  of  the  health  board  to 
encourage  a  better  h3'gienic  treatment  of  young  children  than  now 
prevails.  The  improvement  of  the  drinking  water,  too,  will  much 
decrease  the  death  rate. 

In  connection  with  the  subject  of  health,  reference  should  be  made 
to  the  province  of  Benguet  and  to  Baguio,  the  capital  of  that  province. 
The  secretary  of  commerce  and  police  will  refer  to  the  work  now  being 
done  in  the  construction  of  the  Benquet  road  from  Pozorrubio,  through 
Twin  Peaks,  to  Baguio.  There  have  been  serious  engineering  mis- 
takes made  in  the  road,  and  it  is  proving  to  be  much  more  costly  than 
was  expected;  but  when  completed  its  importance  in  the  development 
of  these  islands  can  hardly  be  overestimated.  One  of  the  things  essen- 
tial to  progress  in  the  islands  is  the  coming  of  more  Americans  and 
Europeans  who  shall  make  this  their  business  home.  If  there  can  be 
brought  within  twelve  hours'  travel  of  Manila  a  place  with  a  climate 
not  unlike  that  of  the  Adirondacks,  or  of  Wyoming  in  summer,  it  will 
add  greatly  to  the  possibility  of  living  in  Manila  for  ten  months  of 
the  year  without  risk.  It  will  take  away  the  necessity  for  long  vaca- 
tions spent  in  America;  will  reduce  the  number  who  go  invalided 
home,  and  will  be  a  saving  to  the  insular  government  of  many  thou- 
sands of  dollars  a  year.  It  will  lengthen  the  peiiod  during  which  the 
American  soldiers  who  are  stationed  here  may  remain  without  injury 
to  their  health  and- will  thus  reduce  largely  the  expense  of  transporta- 
tion of  troops  between  the  islands  and  the  United  States.  More  than 
this,  Filipinos  of  the  wealthier  class  frequently  visit  Japan  or  China 
for  the  purpose  of  recuperating.  People  of  this  class  are  much  inter- 
ested in  the  establishment  of  Baguio  as  a  summer  capital,  and  when 
the  road  is  completed  a  town  will  spring  up,  made  up  of  comfortable 
residences,  of  a  fine,  extensive  army  post,  and  sanitariums  for  the 
relief  of  persons  suffering  from  diseases  prevalent  in  the  lowlands. 
It  is  the  hope  of  the  government  that  the  Roman  Catholic  Church  will 
send  American  priests  as  it  has  sent  American  bishops  to  the  islands, 
to  assist  in  the  moral  elevation  of  the  people.  The  fear  of  the  effect 
of  the  climate  has  kept  many  from  coming.  The  Roman  Catholic 
Church  authorities  have  announced  their  intention  of  erecting  rest 
houses  at  Baguio  for  the  purpose  of  the  recuperation  of  their  minis- 
ters and  agents.  The  Methodists  and  Episcopalians  have  already 
secured  building  lots  in  Baguio  for  this  purpose.  It  is  the  settled 
purpose  of  the  Commission  to  see  this  improvement  through,  no  matter 


OF   THE    PHILIPPINE    ISLANDS,    1900-1903.  51 7 

what  the  cost,  because  eventually  the  expenditures  must  redound  to 
the  benefit  of  the  government  and  people  of  the  islands.  We  have 
alread}^  stated,  in  the  report  on  the  public-land  act,  that  it  is  proposed, 
under  that  act,  which  allows  the  organizing-  of  town  sites,  to  sell  the 
public  land  in  suitable  lots  at  auction  so  that  ever5^one  interested  shall 
have  the  opportunity  to  obtain  a  good  lot  upon  which  to  build  a  suit- 
able house. 

SCHOOLS. 

One  of  the  most  gratifjdng  things  to  report  this  year  is  the  great 
increase  in  the  school  attendance  in  all  the  provinces  but  one.  This 
increase  is  seen  both  in  the  attendance  of  children  at  day  schools  and 
also  in  the  doubled  attendance  at  night  schools  by  adults.  Still,  only 
about  150,000,  or  10  per  cent  of  the  population  of  school  age,  are 
receiving  public  instruction.  We  have  neither  teachers  nor  school- 
houses  enough  to  carr}^  out  our  purpose  of  giving  primary  English 
education  to  every  child  of  school  age  in  the  Archipelago.  Our 
resources  are  not  sufficient  to  permit  the  necessaiy  expenditure. 
Several  millions  could  bo  well  expended  in  the  erection  of  large,  airy, 
and  health}^  schoolhouses,  and  the  number  of  teachers  might  well  be 
multiplied  by  seven.  There  is  an  intense  desire  throughout  the  islands 
to  learn  English,  and  when  one  is  familiar  with  the  number  of  requests 
for  American  teachers  and  for  the  establishment  of  schools  in  which 
English  can  be  taught,  from  Aparri  to  Mindanao,  he  is  justified  in 
smiling  at  the  utterl}"  unfounded  charge  made  b}^  persons  professing 
to  have  some  knowledge  in  respect  to  the  islands,  that  we  are  forcing 
the  English  language  upon  an  unwilling  people.  Here  is  possibly  not 
the  place  to  defend  the  policy  of  a  general  system  of  common  school 
education  in  the  islands,  v^  am  aware  that  our  plans  for  education 
have  been  the  subject  of  considerable  criticism  by  men  whose  experi- 
ence in  eastern  countries  entitles  their  views  to  great  weight,  on  the 
ground  that  b}^  giving  education  to  the  people  we  unfit  them  for  agri- 
cultural and  other  manual  pursuits  and  inspire  them  with  a  desire  to 
succeed  only  as  clerks  and  professional  men:  That  the  result  of  higher 
education  upon  a  people  unfitted  b}^  training  and  moral  stamina  to  use 
it  to  good  purpose  may  be  productive  of  evil  need  not  here  be  denied 
or  discussed.  That  superficial  education  frequently  produces  discon- 
tent and  brings  about  social  disturbances  may  also  be  conceded.  The 
condition,  however,  which  is  most  productive  of  social  disturbances  is 
the  existence  of  a  vast  mass  of  ignorant  people  easily  and  blindl}^  led 
by  the  comparatively  few  of  their  superficially  educated  countrymen 
into  insurrection  and  lawless  violence  without  any  definite  knowledge 
or  certaint}^  as  to  the  beneficial  results  therefrom.  The  theory  upon 
which  we  justify,  even  on  political  grounds,  the  spread  of  education 
is  that  the  more  the  mass  of  igtiovant  persons  is  reduced  in  number  by 
diffusing  among  them  common  school  education  the  less  likely  are 


518  RK1»0RTS    OF    THE    CIVIL    GOVERNMENT 

they  to  bo  led  away  by  (U\i;eiierato  polilical  fakir.s  into  (;xp<M"ien('Os  and 
projects  that  can  Unid  to  notliino-  but  disaster.  The  common  school 
education  does  not  unfit  either  the  oriental  or  the  occidental  laborer 
for  maiuial  efl'ort,  but  it  does  enlighten  him  as  to  a  more  civilized  life, 
and  does  increase  his  wants  and  thus  does  furnish  a  motive  for  more 
continuous  and  harder  labor. 

The  Connnission  has  thought  it  wise  to  inaugurate  the  plan  of  send- 
ing to  America  each  year  for  education  an  average  of  100  bo3's  and  girls 
of  high-school  age  for  the  purpose  of  enabling  them  to  become  teachers, 
lawyers,  doctors,  and  engineers,  on  condition  that  for  five  years  after 
their  return  they  shall  be  subject  to  call  by  the  Government  for  public 
service.  One  hundred  boys  were  sent  in  October.  Sevent3^-five  of 
the  appointments  were  allotted  to  the  provinces  in  proportion  to  the 
school  population  and  interest  in  the  schools  shown  in  the  provinces. 
They  were  selected  in  each  province  by  the  division  school  superin- 
tendent after  a  conference  with  the  provincial  governor,  and  then  25 
were  selected  at  large  by  the  Civil  Governor.  Seventy-five  were  re- 
quired to  come  from  the  public  schools.  They  left  Manila  in  charge 
.of  Professor  and  Mrs.  Sutherland.  They  go  to  southern  California, 
and  will,  in  groups  of  eight  and  ten,  be  sent  to  the  county  high  schools 
of  that  State  which  bear  a  high  reputation.  It  is  thought  that  by  June 
of  next  year  Professor  Sutherland,  who  will  have  general  supervision 
of  them,  may  be  able  to  classify  them  properly  and  distribute  them 
among  the  preparator}"  schools  or  colleges  of  the  East.  The  pro- 
ficienc}^  of  the  students  in  English  formed  an  important  element  in  the 
grounds  for  their  selection.  The  plan  was  very  popular  and  awakened 
a  great  interest  in  every  town  in  the  islands.  As  far  as  possible  the 
selections  made  this  year  were  by  competitive  examination.  Next 
year  a  more  rigid  system  will  be  followed.  Next  j-ear  probably  one- 
third  or  one-half  of  those  selected  will  be  girls,  with  a  view  to  their 
education  as  teachers. 

THE   PHILIPPINE   EXHIBIT  AT  THE  LOUISIANA   PURCHASE   EXPOSITION  AT 

ST.    LOUIS. 

By  Act  No.  51-1,  passed  on  the  11th  of  November,  1902,  for  the  pur- 
pose of  securing,  organizing,  and  making  an  exhibit  of  Filipino  prod- 
ucts, manufactures,  art,  ethnology,  education,  and  habits  of  the  people, 
it  was  provided  that  there  should  be  a  board  of  three  members,  to  be 
appointed  b}'  the  civil  governor,  with  the  consent  of  the  Philippine 
Commission.  The  board  was  authorized  and  directed  to  hold  a  pre- 
liminary exposition  of  certain  of  the  exhibits  at  Manila  in  the  autumn 
of  1903,  and  to  establish  a  permanent  nmseum  in  Manila.  It  was 
authorized  to  secure  the  needed  land  from  the  authorities  of  the  St. 
Louis  Exposition,  to  expend  the  necessary  sums  in  the  drawing  of 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  519 

plans  for  the  necessary  buildings  and  for  their  construction,  and  for 
the  la}' ing  out  of  the  ground  included  in  the  tract  assigned  to  the 
Philippine  exhibit;  to  incur  all  necessary  expenses  in  securing  the 
exhibits,  including  the  necessary  advertising,  in  the  transportation  of 
exhi})its  from  the  point  where  secured  in  the  Philippine  Islands  to 
Manila  and  thence  to  St.  Louis.  The  board  was  authorized  to  incur 
in  all  this  work  obligations  not  exceeding  in  the  aggregate  the  sum  of 
$250,000.  The  heads  of  all  the  bureaus  of  the  insular  government  and 
the  governor  and  members  of  the  provincial  boards  of  provinces  and 
all  municipal  presidents  and  other  officers  were  directed  to  furnish 
every  assistance  in  their  power  to  the  exposition  board  in  obtaining 
the  exhibits.  The  board  was  directed  to  render  a  monthl}^  report  of 
the  work  done  by  it  to  the  civil  governor,  and  a  quarterly  account  of 
its  receipts  and  expenditures  to  the  civil  governor  and  the  auditor  of  the 
islands.  By  another  section  the  civil  governor  was  authorized  to  appoint 
five  honorary  commissioners  to  visit  the  exposition  and  to  report  upon 
the  same.  One  hundred  and  twenty-five  thousand  dollars  gold  was 
appropriated  to  meet  the  obligations  incurred  under  the  act.  Amend- 
ments were  made  to  the  act  subsequently,  varying  some  of  the  pow- 
ers of  the  commission  and  dispensing  with  the  necessity  for  a  pre- 
liminary exposition  in  Manila,  which  proved  to  be  impracticable,  and 
appropriating  $325,000,  making  the  total  appropriation  half  a  million 
dollars  for  the  expense  of  the  exhibit.  At  the  same  time  there  was 
obtained  from  the  authorities  of  the  St.  Louis  Purchase  Exposition  the 
use  of  40  acres  of  land,  the  promise  of  a  contribution  of  $200,000  to 
the  erection  of  the  necessary  buildings  at  the  exhibit  at  St.  Louis,  and 
the  proceeds  of  concessions  granted  in  the  grounds  of  the  exhibit. 
Dr.  William  P.  Wilson,  director  of  the  Philadelphia  Commercial 
Museum,  Dr.  Gustavo  Niederlein,  his  assistant,  and  Senor  Pedro  A. 
Paterno,  who  had  had  much  to  do  with  a  Filipino  exhibit  at  Madrid, 
were  named  the  exposition  l)oard,  and  Senor  Leon  M.  Guerrero,  a  Fili- 
pino of  high  scientific  attainments,  was  made  the  secretary  of  the  board. 
Doctor  Niederlein  came  to  the  islands  immediately  upon  his  appoint- 
ment, and  with  extraordinary  energy  has  secured  upward  of  50,000 
exhibits,  which  will  probably  be  increased  to  80,000.  The  Secretar}"  of 
War  has  ordered  a  battalion  of  four  companies  of  Philippine  Scouts 
to  be  sent  to  the  exposition,  and  the  Philippine  Commission  has  or- 
dered two  companies  of  constabulary  and  one  constabulary  band  of  80 
pieces  also  to  visit  the  exposition  and  remain  there  while  it  is  open. 
Among  the  exhibits  will  be  several  colonics  of  the  various  tri])es, 
civilized  and  uncivilized,  for  the  purpose  of  giving  opportunity  for 
ethnographic  study  of  the  people  of  the  Philippines. 

The  work  has  not  been  without  its  obstacles,  but  it  is  lioped  that  the 
exhibit  will  be  of  interest  to  the  American  people  and  give  them  a 


520  RKTORTS    OF    THE    CIVTL    GOVKRNMENT 

clearer  idea  than  they  now  have,  not  only  of  the  inhabitants  of  the 
island-^,  but  also  of  their  extent  and  the  variety  of  their  products,  the 
work  which  has  l)cen  done  in  the  matter  of  education,  their  artistic 
tastes,  and  their  capacity  in  many  directions.  The  section  directing  the 
appointment  of  live  honorary  commissioners  has  not  yet  been  amended, 
but  it  is  the  purpose  of  the  Commission  to  increase  the  number  to  a 
delegation  of  from  30  to  50  prominent  Filipino  gentlemen  of  education 
and  culture,  who  will  visit  the  exposition  and  various  cities  of  the 
United  States  at  the  expense  of  the  insular  treasury,  with  a  view  to 
bringing  the  two  peoples  nearer  together  and  to  showing  the  intelli- 
gent Filipinos  what  our  country  is  and  what  our  institutions  mean. 
At  the  same  time  this  delegation  will  be  able,  in  the  congresses  at 
St.  Louis,  to  represent  with  dignity  the  intellectual  development  of 
the  islands  and  to  speak  with  authority  upon  the  needs  of  their  peo- 
ple. It  is  thought  that  the  large  amount  of  money  expended  is  justi- 
fied, b}^  the  commercial  advantages  to  the  Philippine  Islands  which  will 
follow  an  exhibit  of  its  products  and  resources,  as  well  as  the  great 
benefit  to  be  derived  from  a  closer  union  and  a  better  mutual  under- 
standing between  the  American  and  Filipino  people.  1  append  hereto 
as  Exhibit  Q  the  report  of  the  exposition  board. 

THE    CENSUS. 

The  details  of  the  taking  of  the  census  will  doubtless  appear  in  the 
report  of  the  secretary  of  public  instruction,  in  whose  department  the 
bureau  of  the  census  by  law  is  put,  and  the  roug'.i  results  of  the  census, 
so  far  as  population  is  concerned,  will  there  appear.  It  is  sufficient  to 
say  that  the  census  was  almost  wholl}^  taken  by  Filipinos  under  the 
direction  of  General  Sanger  and  his  skilled  assistants,  Mr.  Gannett  and 
Mr.  Olmstead,  and  that  on  the  whole  the  machinery  proved  to  be  very 
satisfactory.  The  returns  are  now  being  compiled  in  Washington,  but 
will  probably  not  be  published  before  October  of  1904.  At  the  end  of 
two  3^ears  from  that  date,  if  the  President  shall  find  that  ti-anquillitj^ 
prevails  in  the  Christian  Filipino  provinces,  it  will  become  his  duty  to 
direct  a  holding  of  an  election  for  selection  of  members  for  a  general 
assembly  of  the  Christian  Filipino  people,  which  will  be  a  coordinate 
branch  of  a  legislature  to  be  composed  of  the  Commission  and  the  leg- 
islative assembl}^  This  will  doubtless  prove  to  be  a  most  important 
step  in  the  growth  and  development  of  the  Philippine  people,  and  I 
have  abiding  confidence  that  the  conservative  elements  in  the  Filipino 
people  will  accept  this  concession  on  the  part  of  the  Congress  of  the 
United  States  as  a  proffered  test  of  their  capacity  to  avoid  foolish  and 
impracticable  legislative  measures  and  of  demonstrating  the  existence 
among  them  of  that  self-restraint  which  is  indispensable  to  the  growth 
of  popular  and  effective  self-government. 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  521 


OPIUM. 


Reports  from  various  provinces  and  information  from  other  sources 
have  convinced  the  Commission  that  the  smoking-  of  opium  is  spread- 
ing among  the  native  Filipinos.  Under  the  Spanish  regime  Filipinos 
were  under  penalty  of  fine  or  imprisonment  if  convicted  of  smoking 
opium,  but  opium  joints  or  smoking  places  were  licensed  to  l)e  used 
onl}^  by  Chinamen.  Under  the  tariff  act  now  in  force  the  tariff'  on 
opium  was  somewhat  reduced,  on  the  theory  that  a  high  tax  on  the 
unportation  of  the  drug  increased  the  snmggling  of  it.  The  result  is 
that  except  for  the  tariff'  there  is  no  restriction  at  all  on  the  sale  of 
opium  at  present,  except  that  town  councils  are  required  to  pass 
ordinances  suppressing  opium  joints. 

Commissioner  Moses  was  appointed  to  draft  an  opium  bill,  and  on 
his  resignation  the  task  fell  to  Commissioner  Smith.  He  drafted  a 
bill  which,  in  short,  forbade  the  use  of  opium  by  Filipinos,  or  the 
sale  of  it  to  Filipinos,  but  provided  for  the  granting  of  the  monopoly 
for  the  sale  of  opium  to  Chinamen  for  one  year  to  the  highest 
bidder.  The  maintaining  of  a  public  place  for  the  smoking  of  opium 
was  punished  by  a  fine,  and  every  Chinaman  was  forbidden  to  smoke 
opium  except  on  his  own  premises.  This  bill  called  forth  consid- 
erable opposition,  especially  from  the  president  of  the  Evangelical 
Union,  of  Manila.  Doctor  Stuntz,  of  that  association,  who  had  had 
a  large  experience  in  India,  was  especially  emphatic  in  condemning 
the  sale  of  the  monopoly,  which  he  insisted  had  a  tendency  to  increase 
rather  than  to  diminish  the  use  of  opium.  A  very  extended  discussion 
before  the  Commission  was  carried  on,  and  communications  were  had 
with  the  Secretary  of  War  upon  the  subject.  A  stenographic  report 
of  the  discussion  has  already  been  forwarded  to  Washington. 

The  result  was  that  the  Commission  hesitated  to  take  action  before 
a  more  thorough  investigation  could  be  made  into  the  methods  of 
dealing  with  opium  smoking  in  oriental  countries.  Accordingly  a  law 
was  passed.  No.  800,  under  which  a  committee  was  to  be  appointed  by 
the  civil  governor  to  visit  the  various  oriental  countries  and  make  a 
report  upon  the  methods  of  restricting  the  sale  and  use  of  opium 
which  were  in  force  in  the  East.  Major  Carter,  surgeon,  United  States 
Army,  and  commissioner  of  health  of  the  Philippine  Islands,  Dr.  Jose 
Albert,  a  prominent  Filipino  physician  of  Manila,  and  the  Right 
Rev.  Charles  H.  Brent,  Protestant  Episcopal  Pishop  of  the  Philip- 
pine Islands,  were  appointed  to  make  up  this  connnittee.  Their 
report  is  expected  in  February  or  March,  and  until  that  time  action 
by  the  Commission  has  been  delayed. 


CIVIL,   SERVICE. 


The  report  of  the  civil-service  board,  which  is  attached  hereto  and 
marked  "  Exhibit  R,"  shows  that  the  principles  of  the  merit  system  are 


522  KEJ'OKTS    OK    TllK    ("IVIL    (JoVKKNMKNT 

boiny  oiiforced  with  iiuu-h  rioor,  that  thi*  extuniiuitioiis  lor  places  arc 
iiicrcayino-,  especially  among  the  Filipinos,  and  that  the  proportion  of 
the  places  given  to  the  Filipinos  is  beconiing  greater.  In  the  next 
three  or  four  3'ears  the  proportion  of  Filipinos  in  the  government  is 
certain  to  increase  rapidl}-.  There  are  many  places  in  the  executive 
departments  which  can  only  be  filled  by  one  who  knows  English. 
The  rapidity  with  which  the  Filipinos  are  learning  Englisli  gives 
assurance  that  this  cause  of  their  exclusion  will  not  much  longer 
continue. 

Americans  responsible  for  the  government  of  these  islands  have 
sutt'ered  a  most  humiliating  experience  during  the  past  year  in  the 
numerous  defalcations  of  Americans  charged  with  the  official  duty  of 
collecting  and  disbursing  money.  The  defalcations  in  the  islands  have 
extended  also  to  the  clerical  service  of  the  American  business  firms  in 
the  islands.  The  practice  of  the  government  has  been  to  appoint  to 
positions  of  pecuniary  trust,  especialh'  to  those  where  the  amount  of 
money  handled  was  large,  Americans  alone.  They  were  all  placed 
under  bond  in  either  the  Union  Surety  and  Guaranty  Company,  or, 
later,  in  the  Fidelity  and  Deposit  Compan}'  of  Mar3dand,  or  the  Amer- 
ican Surety  Company  of  New  York.  The  insular  treasurer  and  the 
insular  auditor  have  had  great  difficulty  in  securing  examiners  in  suffi- 
cient number  to  make  the  examinations  as  frequently  as  the  law  re- 
quires, and  the  immunity  from  frequent  examinations,  which  in  future 
will  not  continue,  may  explain  some  of  the  defalcations.  Everyone 
connected  with  the  government  realized  as  soon  as  the  defalcations 
w^ere  made  public  the  demoralizing  effect  that  such  revelations  must 
have  upon  the  service  unless  such  dishonesty  was  promptly  punished. 
A  still  more  serious  result  was  the  effect  upon  the  Filipinos,  who  had 
been  advised  that  Americans  would  be  honest  w^here  others  had  not 
been  so  careful  in  accounting  for  public  money.  Prosecutions  were 
vigorously  begun  against  all  defaulting  officers,  and  the  surety  com- 
panies have  responded  when  shown  their  liability. 

So  far  as  is  known,  the  only  defaulting  officer  who  has  escaped 
trial  is  a  deputy  collector  named  Stewart,  at  Iloilo,  who  managed  to 
reach  the  United  States  at  a  time  when  there  was  no  extradition  law. 
It  is  hoped  that  he  will  be  apprehended  and  brought  back.  In  other 
cases  defaulting  officials  have  reached  Hongkong,  Shanghai,  or  even 
Montreal  before  their  arrest,  but  the  insular  government,  sparing  no 
effort  or  expense,  has  succeeded  in  bringing  them  to  their  W' ell -deserved 
punishment.  Two  defaulters,  though  tried,  have  escaped  conviction 
of  embezzlement  on  the  ground  that  others  had  stolen  the  mone3\  In 
the  case  of  one  of  these,  three  subordinates  were  convicted. 

The  question  that  naturally  presents  itself  after  a  review  of  these 
instances  of  dishonesty  is  whether  we  are  to  expect  a  recurrence  of 
them.     I  am  glad  to  say  that  I  think  not.     They  are  the  natural  result 


OF    THE    PHILIPPINK    ISLANDS,   1900-1903.  523 

of  the  circumstances  under  which  selections  for  official  j^ositions  in  the 
beginning  of  this  government  had  to  be  made.  The  mode  of  selec- 
tion under  the  civil-service  law  could  not,  of  course,  be  applied  at  first, 
because  the  government  had  to  become  at  once  a  going  concern.  The 
army  officers  who  had  begun  the  civil  government  here  had  to  be 
relieved,  the  number  of  officers,  as  civil  government  spread  through 
the  provinces,  had  to  be  largely  increased,  and  the  material  from  which 
selections  had  to  be  made  was  those  men  who  had  resigned  from  the 
Army  or  had  been  mustered  out  and  proposed  to  remain  in  the  Philip- 
pines. It  was  impossible  in  the  selection  of  so  many  officers  to  insti- 
tute a  thorough  investigation  into  their  lives  in  the  States.  There 
were  men  among  those  who  have  proven  since  to  be  defaulters  who 
changed  their  names  with  the  view  of  avoiding  the  investigation  which 
would  have  disclosed  dishonesty  in  their  past  lives.  Then,  too,  in  the 
very  unsettled  conditions  which  have  prevailed  here,  men  who  would 
not  have  yielded  to  temptation  to  dishonesty  in  the  States  were  unable 
to  resist  it  here.     As  was  said  in  the  first  report  of  the  Commission: 

Many  leave  the  United  States  honest,  but  with  the  weakening  of  the  restraints  of 
home  associations  and  with  the  anxious  desire  to  make  so  long  a  trip  result  success- 
fully in  a  pecuniary  advantage,  demoralization  and  dishonesty  are  much  more  likely 
to  follow  than  at  home.  To  avoid  the  dangers  presented  by  these  conditions  it  is 
necessary,  first,  to  banish  all  favoritism  and  political  considerations  from  the  selec- 
tion of  civil  servants  and  rigidly  enforce  the  requirements  of  a  competitive  examina- 
tion and  a  satisfactory  showing  by  the  applicant  of  his  good  moral  character;  second, 
to  pay  adequate  salaries  and  to  allow  liberal  leaves  of  absence  adapted  to  preserva- 
tion of  health  in  the  Tropics,  thus  securing  that  contentment  with  the  service  with- 
out w-hich  good  work  is  not  possible,  and,  third,  to  awaken  an  enthusiasm  in  the 
service  by  offering  as  a  reward  for  faithful  and  highly  efficient  work  a  reasonable 
prospect  of  promotion  to  the  highest  position  in  the  government. 

The  lack  of  ordinary,  rational,  and  healthful  amusements  for  one 
engaged  as  a  provincial  officer  in  the  country  itself  turns  the  minds  of 
not  overstrong  natures  toward  vicious  pursuits  and  enjoyments  like 
those  of  gambling  and  licentious  association  with  native  women. 
There  is  thus  furnished  a  means  of  spending  money  in  excess  of  the 
legitimate  salaries,  which  soon  leads  on  to  an  appropriation  of  the  pub- 
lic funds.  In  the  beginning  of  this  government  it  was  impossible  to 
organize  a  system  of  inspection  which  should  enable  us  to  follow  the 
private  lives  of  our  employees  charged  with  the  custod}^  of  money, 
but  as  the  organization  becomes  better  and  our  system  of  inspection 
becomes  more  thorough  we  are  able  to  furnish  the  weaker  of  our 
employees  the  fear  of  expected  inspection  as  a  strong  motive  for  pur- 
suing honest  ways.  There  follows  below  a  short  statement  of  the 
history  of  each  of  the  defaulting  officials  in  the  Philippine  civil  service 
during  the  period  July  1,  1902,  to  November  9,  1903: 

James  F.  Beahan. — P>orn  at  Boston,  Mass.,  in  1877.  Enlisted  in  Company  A, 
Ninth    Massachusetts   Volunteers,    May   4,    1898;   discharged   November  26,    1898. 


524  KEPORTS    OF    THE    CIVIL    GOVERNMENT 

Enlisted  in  Company  F,  Ninth  U.  S.  Infantry,  January  14,  1899;  discharged  Janu- 
ary 31,  1900,  to  accei>t  employment  as  clerk  in  the  onieoof  the  chief  surgeon,  provost 
guard,  Manila.  Continued  with  the  l)oard  of  health,  and  promoted  to  clerk  at|l,600 
October  1,  1901 ;  appointed  disbursing  oflicer  A])ril  1,  1902,  at  $1,800  per  annum.  An 
examination,  made  in  October,  1902,  of  his  accounts  disclosed  numerous  claims  for 
credit  covering  duplicated  payments,  besides  evidence  of  forgery  of  names  to  a  pay 
roll  for  which  he  had  claimed  credit.  These  fraudulent  claims  for  credit  amounted 
to  about  $4,300  Mexican  currency,  but  there  were  besides  many  irregular  vouchers 
and  imjiroper  transactions.  Mr.  Beahan  was  tried  and  convicted  on  two  charges, 
the  lirstof  "falsification  of  public  documents,"  for  which  he  was  sentenced  to  twelve 
years  imprisonment  December  1(5,  1902.  On  the  second  charge,  "misappropriation 
of  public  funds,"  he  was  given  an  additional  sentence  of  twelve  years  imprisonment 
March  31,  1903.  Between  the  time  of  his  arrest  and  final  conviction  Mr.  Beahan 
fled  to  Shanghai,  China,  where  he  was  apprehended  and  returned.  The  government 
secured  by  attachment  the  amount  of  a  personal  deposit  of  $2,000  gold  made  by  him 
in  one  of  the  Manila  banks. 

William  A.  Wilson.— Born  at  Buffalo,  N.  Y.,  in  1871.  Enlisted  in  the  Thirty- 
fifth  Infantry,  U.  S.  Volunteers,  August  22,  1899;  discharged  March  13,  1901,  as 
regimental  commissary  sergeant;  tempoi-arily  employed  in  police  department,  April 
1  to  August  9,  1901,  as  clerk  at  $1,200  per  annum;  appointed  to  the  bureau  of  the 
insular  treasury  as  clerk  at  $1,200  per  annum  August  12,  1901,  as  a  result  of  civil- 
service  examination;  transferred  to  office  of  the  captain  of  the  port  at  $1,600  Sep- 
tember 12,  1901 ;  transferred  to  the  bureau  of  coastguard  and  transportation  January 
1,  1902,  at  $1,800;  promoted  to  disbursing  officer  April  1,  1902,  at  $2,000.  In  Decem- 
ber, 1902,  he  disappeared,  and  in  the  examination  of  his  accounts  which  followed  an 
actual  cash  shortage  of  $19,265.65  Mexican  currency  was  discovered.  Wilson  was 
traced  by  way  of  Hongkong  and  Shanghai  to  Montreal,  Canada,  where  he  was 
arrested  by  United  States  secret  service  agents  and  returned  to  Manila  for  trial.  He 
was  charged  with  "misappropriation  of  public  funds"  and  "falsification  of  a  public 
document."  In  the  first  case  he  received  a  sentence,  April  13,  1903,  of  twelve  years 
imprisonment,  and  in  the  second  case  a  sentence  of  twelve  years  and  one  day  and  a 
fine  of  1,250  pesetas,  April  20,  1903.  Demand  was  made  for  the  full  amount  of  the 
shortage  upon  the  Fidelity  and  Deposit  Company  of  Maryland  and  the  American 
Surety  Company  of  New  York,  joint  sureties,  and  the  claim  was  settled  in  full 
October  22,  1903. 

Matthew  T.  E.  Ward. — Appointed  subinspector  in  the  Philippines  Constabulary 
May  1,  1902;  promoted  to  fourth-class  inspector  July  1,  1902.  In  October,  1902,  he 
was  found  short  in  his  cash  and  commissary  accounts  to  the  amount  of  $1,  266.26 
Mexican  currency,'and  was  tried  on  the  charge  of  "misappropriation  of  pubic  funds," 
and  was  sentenced  to  imprisonment  for  two  years,  four  months,  and  one  day  on 
December  4,  1902.  The  full  amount  of  his  shortage  was  paid  by  the  Union  Surety 
and  Guaranty  Company  of  Philadelphia  August  31,  1903.  An  additional  shortage 
on  account  of  property  is  still  undetermined. 

Charles  J.  De  Witt. — Born  at  Brooklyn,  N.  Y.,  in  1876.  Formerly  an  enlisted 
man  in  the  Third  U.  S.  Cavalry; ^appointed  fourth-class  inspector,  Philippines  Con- 
stalxilary,  at  $800  per  annum,  September  19,  1902.  In  January,  1903,  he  was  found 
short  $10,498.83  Mexican  currency  in  his  cash,  commissary,  and  property  accounts: 
was  tried  for  "misappropriation  of  public  funds"  and  sentenced,  February  9,  1903, 
to  ten  years'  imprisonment.  The  amount  of  his  shortage  was  paid  August  15,  1903, 
by  the  Fidelity  and  Deposit  Company  and  the  American  Surety  Company,  joint 
sureties. 

0.  G.  Milne. — Born  in  New  York  in  1881.  Appointed  postmaster  at  Tacloban, 
Leyte,  September  1,  1902,  at  $1,000  per  annum.  In  November,  1902,  he  claimed  to 
have  been  the  victim  of  a  robbery  of  over  $12,000  United  States  currency  in  money- 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  525 

order  funds  from  his  office.  His  statements  were  not  consistent.  The  matter  was 
investigated  by  the  inspectors  of  the  bureau  of  iiosts,  and  upon  the  evidence  secured 
Milne  was  arrested  and  convicted  of  "misappropriation  of  public  funds"  to  the 
amount  of  $12,140.80  United  States  currency.  He  was  sentenced,  May  1,  1903,  to 
imprisonment  for  eight  years  and  one  day.  After  his  conviction  he  confessed  his 
crime  and  pointed  out  where  $9,102.50  United  States  currency,  for  which  he  was 
accountable,  was  concealed.  This  sum  was  recovered  and  a  further  sum  of  $3,000 
United  States  currency,  the  full  amount  of  his  bond,  was  paid  July  21,  1903,  ])y  the 
Union  Surety  and  Guaranty  Company  of  Philadelphia. 

Albert  C.  Roberts. — Born  in  Kentucky  in  1873.  Served  as  sergeant  of  Company 
D,  Second  Kentucky  Volunteer  Infantry,  and  as  regimental  quartermaster-sergeant 
of  the  same  regiment ;  enlisted  May  3  and  discharged  August  31,  1898.  Served  in 
subsistence  and  quartermaster's  departments  of  U.  S.  Army  from  November  1, 
1898,  to  June  30,  1901;  appointed  bookkeeper  in  the  Insular  Cold  Storage  and  Ice 
Plant,  July  1,  1901,  at  $1,500  per  annum;  compensation  increased  to  $1,800  January 
1,  1902.  Upon  examination  of  his  accounts  in  May,  1903,  he  was  found  short  to  the 
extent  of  $1,622.42  United  States  currency,  and  $7,014.65  Mexican  currency,  and 
was  tried  on  the  charge  of  "misappropriation  of  public  funds,"  but  was  convicted 
of  permitting  others  to  abstract  public  funds,  and  sentenced  July  10,  1903,  to  pay  a 
fine  equal  to  the  amount  of  the  shortage  in  addition  to  the  civil  liability  under  his 
bond.  Demand  was  made  upon  the  Fidelity  and  Deposit  Company  and  the  Ameri- 
can Surety  Company,  joint  sureties,  and  the  claim  was  settled  in  full  October  22, 
1903.  Case  pending  on  appeal  of  the  government,  seeking  a  sentence  of  imprison- 
ment for  years  in  the  penitentiary. 

J.  Valentine  Karelson. — Born  in  New  York  City  in  1875.  Enlisted  in  the 
Twenty -seventh  Battery,  Indiana  Light  Artillery,  May  10,  1898;  discharged  July  17, 
1898,  for  disability;  appointed  to  the  position  of  clerk,  at  $900  per  annum,  in  the 
Manila  post-office,  May  16,  1902,  as  a  result  of  civil-service  examination;  transferred 
to  the  position  of  postmaster  at  Calamba,  Laguna,  January  15,  1903,  at  $1,000  per 
annum.  In  April,  1903,  he  claimed  to  have  lost  $1,000,  United  States  currency,  in 
transit  to  his  depositary  at  Manila.  Investigation  showed  that  his  claim  was  a  false 
one.  He  was  charged  with  "misappropriation  of  public  funds,"  convicted,  and 
sentenced  July  5,  1903,  to  imprisonment  for  ten  years  and  one  day,  and  to  pay  a 
fine  of  $1,000  United  States  currency.  Demand  has  been  made  upon  the  Union 
Surety  and  Guaranty  Company,  but  the  matter  is  unadjusted. 

Walter  Shultz. — Born  at  Houstonia,  Mo.,  in  1875.  Enlisted  in  Company  H, 
First  Territorial  Infantry,  July  27, 1898;  mustered  out  February  17, 1899;  reenlisted  in 
Company  H,  Thirty-fourth  Infantry,  July  25,  1900;  discharged  as  sergeant  February 
26,  1901;  appointed  postmaster  at  Laoag,  Uocos  Norte,  on  a  percentage  basis,  March 
1,  1901;  salary  fixed  at  $1,000  per  annum  April  1,  1901;  returned  to  the  percentage 
basis  October  1,  1901;  reappointed  postmaster  at  Laoag  April  1,  1903,  at  $900  per 
annum;  salary  increased  to  $1,000  July  1,  1903.  In  July,  1903,  he  was  found  short 
$2,500  United  States  currency  by  Post-Office  Inspector  Ladd.  Shultz  confessed  and 
made  a  full  statement  of  his  peculations.  He  was  charged  with  "misappropriation 
of  public  funds,"  and  sentenced  to  imprisonment  for  eight  years  and  one  day.  The 
final  audit  of  this  account  showed  a  net  shortage  of  $2, 511. 97  United  States  currency. 
It  appeared  by  the  confession  of  the  late  postmaster  that  the  sum  of  $809.  52  United 
States  currency  was  abstracted  from  the  money-order  funds  prior  to  October  1,  1902, 
at  which  time  a  bond  given  ])y  the  Union  Surety  and  Guaranty  Company  was 
effective.  For  the  remainder  of  the  shortage,  $1,  702.  45  United  States  currency,  the 
Fidelity  and  Deposit  Company  and  the  American  Surety  Company  were  deemed 
jointly  liable.  Demand  was  made  \i\)on  tlie  surety  companies  concerned,  and  the 
amount  for  which  each  was  liable  was  jiaid  October  ,22,  1903. 

Bartlett  Sinclair.— Born  at  Lancaster,  S.  C,  in  1864.  A  member  of  the  New 
York  bar  and  subsequently  auditor  of  the  State  of  Idaho.  Most  highly  recom- 
23181—04 34 


526  REPORTS    OF   THE    CIVIL    GOVERNMENT 

memleii.  Appointed  treasurer  province  of  Kizal  September  25,  1901.  In  January, 
1903,  he  was  found  sliort  in  bis  accounts  in  the  sum  of  $1,  410.  40  United  States  cur- 
rency. He  was  removed  from  office  and  cliarged  under  a  Si)anisb  statute  still  in 
force  with  "  carelessness  and  negligence  in  office,"  as  a  result  of  which  he  permitted 
others  to  abstract  public  funds.  The  books  of  the  late  treasurer,  aa  kept  by  him, 
showed  a  shortage  of  over  $10,  000  Mexican  currency,  while  additional  debits  not 
charged,  amounting  to  over  |10, 000  Mexican  currency,  were  discovered  in  the 
examination  of  his  office.  The  case  against  Sinclair  resulted  in  acquittal,  on  the 
peculiar  ground  that  he  was  as  attentive  to  his  duties  as  a  man  with  his  lack  of 
money  accounting  sense  could  be  expected  to  be,  October  20,  1903.  The  loss  has 
been  paid  in  full  by  the  sureties. 

Emouv  II.  FoGERTY.— Born  at  Worcester,  Mass.,  in  1874.  Cadet  United  States 
Revenue-Cutter  Service,  1898-1900.  Appointed  to  the  Philippine  civil  service  from 
the  United  States  as  a  result  of  civil-service  examination  April  21, 1902;  assigned  to 
the  position  of  deputy  treasurer,  province  of  Rizal,  under  Bartlett  Sinclair.  Mr. 
Fogerty  made  a  written  confession  of  having  appropriated  to  his  own  use  a  sum 
equivalent  to  §1,276  United  States  currency,  pleaded  guilty,  and  was  sentenced 
April  8,  1903,  to  three  years'  imprisonment. 

RiCARDO  Gutierrez.— Born  in  Baliuag,  P.  I.,  in  1882.  Appointed  clerk  in  the 
office  of  the  treasurer,  province  of  Rizal  at  $180,  July  9,  1901;  promoted  September 
15,  1901,  to  the  position  of  deputy  treasurer  at  $300  per  annxmi.  While  deputy  of 
ex -Treasurer  Sinclair,  was  charged  with  misappropriation  of  $244.  34  Mexican  cur- 
rency, but  reimbursed  the  government  before  the  date  of  his  sentence,  which  was 
imprisonment  for  four  months  and  one  day. 

.  Gregorio  de  Silva.— Born  at  Pasig,  P.  I.,  in  1875.  Appointed  clerk  in  the  office 
of  the  treasurer,  province  of  Rizal,  on  July  15,  1901,  at  $180  per  annum.  While 
deputy  of  ex -Treasurer  Sinclair,  he  was  convicted  of  having  appropriated  $46.28 
Mexican  currency,  but  reimbursed  the  government  before  a  sentence  of  two  months' 
imprisonment  was  imposed. 

Frank  Dean  Tompkins.— Born  at  Troy,  N.  Y.,  in  1870.  Appointed  first  lieu- 
tenant. First  U.  S.  Volunteer  Infantry,  June  21,  1898;  honorably  mustered  out 
October  28,  1898;  appointed  first  lieutenant,  Thirty-third  U.  S.  Volunteer  Infantry, 
April  5,  1899;  detailed  as  treasurer  and  collector  of  internal  revenue,  province  of  La 
Union,  while  in  the  military  service,  and  appointed  treasurer  of  the  province  of  La 
Union  August  15,  1901,  at  $2,000  per  annum.  An  examination  of  the  accounts  of 
Dean  Tompkins  made  in  June,  1903,  disclosed  a  shortage  of  $221.15  United  States 
currency,  and  $22,744.25  Mexican  currency.  After  the  seizure  of  his  office,  July  5, 
1903,  by  the  deputy  of  the  insular  treasurer,  Mr.  Tompkins  made  cash  payments  on 
his  shortage  amounting  to  $1,129.99  United  States  currency  and  $7,061.26  Mexican 
currency,  besides  payment  by  personal  notes  given  by  him  to  various  persons  for 
salary  vouchers,  for  which  he  claimed  credit  in  his  accounts,  amounting  to  $294.50 
United  States  currency  and  $1,338.74  Mexican  currency.  The  persons  who  accepted 
these  notes  now  state  that  they  did  so  with  the  understanding  that  the  province  was 
cramped  for  funds  or  that  the  actual  cash  was  not  available,  and  that  the  obligation 
of  the  government  to  pay  was  not  discharged  by  acceptance  of  the  notes.  The  notes 
were  given  to  provincial  officers  and  employees  after  the  seizure  of  the  office,  how- 
ever. Nine  charges  were  filed  against  ex-Treasurer  Tompkins— four  for  "estafa," 
four  for  falsification  of  public  documents  in  forging  names  of  municipal  treasurers  to 
receipts  for  money  for  which  he  took  credit,  and  one  for  misappropriation  of  public 
funds  amounting  to  $221.15  United  States  currency  and  $22,744.25  INIexican  currency. 
One  of  the  cases  for  "estafa"  resulted  in  acquittal  on  account  of  a  technicality.  In 
the  next  case  heard,  the  charge  being  forgery,  the  defendant  was  found  guilty  and 
sentenced  to  im])risonment  for  seventeen  years,  four  months,  and  one  day.  During 
the  hearing  of  the  third  case  brought  to  trial,  that  of  misay)propriation  of  jinblic 
funds,  the  defendant  fell  sick,  and  further  hearing  of  the  case  was  postponed  to 


OF   THE    PHILIPPINE    ISLANDS,    1900-1903.  527 

October  1,  1903.  This  case  resulted  in  conviction,  and  an  additional  sentence  of 
imprisonment  for  nine  years  was  imposed  October  15.  The  loss  is  unadjusted.  The 
remainder  of  the  indictments  are  in  abeyance. 

Alfred  E.  Wood. — Born  at  Reigate,  England,  in  1864.  Appointed  in  the  United 
States  to  the  Philippine  civil  service  as  clerk,  at  $1,400  per  annum,  as  a  result  of  civil- 
service  examination;  assigned  to  the  bureau  of  the  insular  purchasing  agent  upon 
arrival;  resigned  and  appointed  in  the  Census  Bureau  October  31,  1902;  resigned 
December  5,  1902;  reinstated  and  appointed  chief  clerk  and  deputy  treasurer  of  the 
province  of  La  Union  December  15,  1902,  at  $1,200  per  annum.  As  deputy  to  Dean 
Tompkins,  ex-treasurer  of  Union  province,  he  made  certain  illegal  collections  from 
municipal  treasurers  and  embezzled  the  same.  The  amount  involved  is  a  part  of  the 
treasurer's  shortage.  Wood  was  found  guilty  September  10,  1903,  of  "estafa,"  and 
sentenced  to  four  months'  imprisonment  in  the  provincial  jail. 

Thomas  P.  Coates. — Bo'rn  in  Illinois  in  1880.  Appointed  to  the  position  of  clerk, 
bureau  of  customs,  Condon,  P.  I.,  at  $600,  on  February  20,  1900.  Promoted  to  coast 
district  inspector  of  customs,  San  Fernando,  Union,  at  $1,400,  on  June  24,  1901. 
In  July,  1903,  he  was  found  short  in  his  accounts  $1,990.22  Mexican  currency,  by 
Sui^ervising  Special  Agent  Edwards,  of  the  customs  service.  Coates  was  charged  with 
misappropriation  of  funds,  and  also  with  "estafa,"  in  using  a  false  and  fraudulent 
check  of  Dean  Tompkins  to  deceive  the  special  agent.  He  was  found  guilty  of  the 
first  charge  September  9,  1903,  and  sentenced  to  eight  years'  imprisonment.  The 
defendant  paid  the  amount  of  his  shortage  in  open  court. 

Charles  H.  Osborn. — Born  in  Brooklyn,  N.  Y.,  in  1875.  Enlisted  in  Company 
B,  Ninth  New  York  Voluntary  Infantry,  May  2,  1898.  Reenlisted  in  Company  L, 
Third  U.  S.  Infantry,  July  20,  1900;  discharged  to  accept  employment  as  clerk  in  the 
office  of  the  adjutant-general.  Department  of  North  Philippines,  June  23,  1901;  trans- 
ferred to  Quartermaster's  Department  December  21,  1901;  appointed  fourth-class 
inspector,  Philippine  Constabulary,  June  20,  1902,  at  $800  per  annum;  assigned  as 
supply  officer  at  San  Fernando,  Union,  September  30,  1902;  compensation  increased 
to  $900  per  annum  June  1,  1903;  June,  1903,  he  was  found  short  $6,081.55  Mexican 
currency,  in  his  disbursing  and  commissary  accounts,  and  was  cliarged  with  misap- 
propriation of  public  funds  and  "estafa"  in  using  a  false  and  fraudulent  check  of 
Dean  Tompkins  for  $3,000,  to  be  used  as  cash  during  inspection  of  his  accounts. 
Osborn  was  found  guilty  of  misappropriation  of  funds  and  sentenced  September  9  to 
ten  years'  imprisonment.     Demand  will  be  made  upon  his  sureties  without  delay. 

QuiNTiN  E.  Gonzalez. — Born  at  Manila,  P.  I.,  in  1870.  Appointed  fourth-class 
inspector,  Philippine  Constabulary,  September  20,  1901,  at  $800  per  annum;  pro- 
moted to  third-class  inspector  June  17,  1902,  at  $950;  promoted  December  18,  1902, 
to  $1,000.  He  was  found  short  in  his  accounts  to  the  amount  of  about  $1,600  Mexi- 
can currency,  and  is  under  arrest  pending  trial.  The  shortage  has  been  made  good 
by  him. 

William  G.  Hollis. — Born  at  Chatham,  Mass.,  in  1873.  Enlisted  in  Company  L, 
Fifth  Massachusetts  Infantry,  June  1,  1898;  mustered  out  March  31,  1899;  served  as 
property  clerk  and  stenographer  in  the  Quartermaster's  Department  in  Cuba  and 
later  in  the  ofiice  of  the  depot  quartermaster.  Department  of  Northern  Luzon,  from 
1899  to  June  30,  1901;  appointed  clerk,  office  of  the  insular  treasurer,  July  1,  1901, 
as  a  result  of  civil-service  examination,  at  $1,200  per  annum;  salary  increased  July  15 
to  $1,400;  September  1,  to  $1,600;  October  17,  to  $1,800;  February  1,  1902,  to  $2,000; 
appointed  treasurer  of  Occidental  Negros  August  8,  1902.  In  June,  1903,  an  exami- 
nation of  his  cash  accounts  showed  a  shortage,  as  of  June  23,  1903,  of  $11,063.11 
Mexican  currency,  with  an  overage  of  $86.71  United  States  currency.  His  trial  is 
pending  before  the  court  of  first  in.stance  of  Bacolod.  Demand  will  be  made  upon 
sureties  for  the  amount  misappropriated. 

.Fames  W.  Walsh,  Jr.— Born  in  North  Dakota  in  1876;  appointed  subhispector, 
Philippine  Constabulary,  at  $480  per  annum,  February  13, 1902;  promoted  April  1  to 


528  REPORTS    OF    THE    CIVIL    GOVERNMENT 

fourth-class  inspector  at  $800;  di^faulted  in  his  accounts  in  October,  1903.  From  the 
incomplete  records  in  this  office  it  api)ears  that  he  is  short  in  his  disbursing  account 
in  the  sum  of  $10,557.(36  Mexican  currency,  and  in  his  commissary  account  in  the 
sum  of  $5,603.98  Philippine  currency.  He  was  convicted  and  sentenced  to  ten  years' 
imprisonment  for  the  shortage  of  more  than  $10,000  in  his  local  currency  account, 
and  was  given  an  additional  sentence  of  ten  years'  imprisonment  for  the  embezzle- 
ment of  commissary  stores. 

Charles  G.  Johnson. — Appointed  subinspector,  Philippine  Constabulary,  April 
26,  1902,  at  $480  per  annum;  promoted  to  fourth-class  inspector  at  $800  per  annum 
on  July  1,  1902.  While  acting  in  his  capacily  of  supi)ly  officer  of  constabulary  it 
appears  that  he  turned  pirate  and  was  killed  in  an  attempt  to  escape  capture.  Incom- 
plete reports  at  hand  indicate  a  shortage  of  $8,625  Philippine  currency.  The  defal- 
cation in  his  accounts  occurred  in  September,  1903.  Demand  will  be  made  upon  his 
sureties  for  the  full  amount  involved. 

For  the  purposes  of  comparison  there  follows  a  letter  from  the 
auditor  showing-  the  total  number  of  officers  in  the  I'hilippines  hand- 
ling- money,  either  as  receiving  or  disbursing  officers,  and  the  amounts 

handled: 

The  Government  of  the  Philippine  Islands, 

Office  of  the  Auditor, 
Manila,  November  10,  1903. 

Sir:  In  compliance  with  your  verbal  request,  I  have  the  honor  to  submit  herewith 
lists  of  the  collecting  and  disbursing  officers,  insular  and  provincial  (including  the 
city  of  Manila),  who  served  during  the  fiscal  year  1903. 

It  should  be  noted  that  many  persons  served  as  collecting  or  disbursing  officers  in 
more  than  one  capacity,  and  in  such  cases  the  name  appears  for  each  capacity,  as 
such  accounts,  so  far  as  the  auditor  is  concerned,  are  as  separate  as  if  rendered  by 
different  individuals. 

The  lists  may  be  classified  as  follows: 

Number  of  officers  who  received  or  disbursed  over  $2,000,000 4 

Number  of  officers  who  received  or  disbursed  more  than  $1,000,000  and  less 

than  $2,000,000 3 

Number  of  officers  who  received  or  disbursed  more  than  $500,000  and  less  than 

$1,000,000 10 

Number  of  officers  who  received  or  disbursed  more  than  $100,000  and  less  than 

$500, 000 31 

Number  of  officers  who  received  or  disbursed  more  than  $75,000  and  less  than 

$100,000 22 

Number  of  officers  who  received  or  disbursed  more  than  $50,000  and  less  than 

$75,000 29 

Number  of  officers  who  received  or  disbursed  more  than  $40,000  and  less  than 

$50,000 15 

Number  of  officers  who  received  or  disbursed  more  than  $20,000  and  less  than 

$40,000 80 

Number  of  officers  who  received  or  disbursed  more  than  $10,000  and  less  than 

$20,000 81 

Number  of  officers  who  received  or  disbursed  more  than  $5,000  and  less  than 

$10,000 84 

Number  of  officers  who  received  or  disbursed  more  than  $1,000  and  less  than 

$5, 000 185 

Number  of  officers  who  received  or  disbursed  more  than  $500  and  less  than 

$1,000 69 

Number  of  officers  who  received  or  disbursed  less  than  $500 491 

Total 1.104 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  529 

The  treasurer  of  tlie  inlands,  who  is  not  included  in  the  foregoing  classification, 
received  during  the  fiscal  year  deposits  of  insular  funds  amounting,  approximately, 
to  $15,000,000  in  United  States  currency  and  $25,000,000  in  ]\Iexican  currency.  As 
depositary  he  received  additional  deposits  amounting  to  $27,965,608  in  United  States 
currency  and  $24,612,902  in  Mexican  currency. 
Respectfully, 

A.  L.  Lawshe,  Auditor. 
The  honorable  Civil  Governor. 

Tlic  percentage  of  defaulters  thus  appears  to  be  less  than  2  per  cent. 
This  is  far  too  large,  but  we  feel  assured  that  next  year  will  show  a 
notable  decrease.  "It  is  an  ill  wind  that  blows  nobody  good,"  and 
the  punishment  of  American  officials  for  dishonest}^  has  furnished  the 
Filipinos  a  spectacle  which  they  never  enjoyed  during  the  Spanish 
regime.  It  is  not  a  matter  of  inference,  but  it  is  a  matter  of  observa- 
tion, that  the  prompt  trial  and  severe  punishment  of  American  officials 
has  inspired  in  the  Filipinos  confidence  in  the  sense  of  justice  of  this 
government.  The  severe  losses  entailed  on  the  surety  companies 
during  this  yesLV  will  probabl}^  necessitate  an  increase  in  the  rate  at 
which  the  bonds  will  be  issued  for  the  next  3"ear,  and  yet  at  no  other 
time  in  the  history  of  the  islands,  probably,  is  the  surety  business 
likely  to  be  more  lucrative  than  during  the  immediate  future. 

The  revelations  of  dishonesty  in  the  officials  above  named  have  not 
shaken,  but  have  only  strengthened  our  confidence  in  the  wisdom  of 
the  merit  system.  The  means  of  obtaining  information  concerning  a 
man's  previous  character  are  being  much  improved,  and  the  certainty 
of  tenure  produced  })y  the  merit  system  all  tend  to  inspire  the  civil 
servant  with  an  esprit  de  corps  and  convince  him  that  the  only  possible 
course  for  him  to  pursue  with  a  view  to  success  is  a  devotion  to  duty 
and  to  the  interests  of  the  public  and  the  government.  The  merit 
system  excludes  favoritism,  and  with  favoritism  excluded  and  the 
reasonable  hope  of  promotion  for  good  work  present,  there  is  a  cer- 
tainty of  securing  honest  and  enthusiastic  civil  servants. 

THE    COASTWISE    LAWS. 

Unless  Congress  takes  some  action,  on  Juh'  1,  1904,  the  coastwise 
laws  of  the  United  States  will  apply  not  only  to  the  interisland  ship- 
ping trade,  Init  also  to  the  trade  between  the  islands  and  the  United 
States.  In  the  present  conditions  nothing  could  be  more  disastrous  to 
these  islands.  The  effect  of  the  laws  would  be  to  exclude  from  the 
islands  and  the  American  trade  all  but  American  bottoms.  The  inter- 
island trade  is  as  necessary  to  the  life  of  the  islands  as  the  arterial 
S3'stem  to  the  human  body.  The  application  of  the  United  States 
coastwise  laws  would  exclude  a  great  majorit}'  of  the  ships  now  engaged 
in  the  trade  and  would  inflict  immense  damage  to  the  business  of  the 
islands.  In  1809,  by  Executive  order,  the  coastwise  trade  was  limited 
to  vessels  bona  fide  owned  either  by  a  citizen  of  the  United  States, 


530  REPORTS    OF    THE    CIVIL    GOVERNMENT 

resident  in  the  islands,  or  a  native  inhabitant,  or  a  resident  who  had 
boc-omo  a  citi/on  of  the  islands  l\y  the  treaty  of  Paris.  Even  this 
order,  if  strictly  enforced,  would  have  excluded  a  large  proportion  of 
the  available  coasting  vessels  then  engaged  in  the  business,  and  the 
niilitarv  authorities,  to  avoid  the  disaster  of  driving  them  out  of  the 
trade  of  the  islands,  winked  at  colorable  transfers  to  Filipino  clerks 
and  agents  in  whose  names  certificates  of  protection  were  taken  out. 
These  vessels  had  been  in  the  trade  in  Spanish  times,  and  they  were 
still  needed.  Any  change  in  the  existing  laws  should  provide  that 
vessels  now  having  a  certificate  of  protection  should  be  allowed  to 
continue  in  the  trade.  Indeed  so  convinced  were  the  Commission 
that  the  interisland  shipping  was  not  extensive  enough  for  the  good 
of  the  islands  that  we  procured  an  amendment  to  the  Executive  order 
by  which,  under  certain  restrictions,  vessels  under  foreign  flags  may 
engage  in  the  interisland  trade.  The  occasion  for  this  was  a  combina- 
tion among  the  interisland  shippers  to  keep  up  unreasonable  rates. 
The  amendment  has  had  an  excellent  effect  and  rates  are  more  reason- 
able, although  still  too  high.  If  the  present  profits  of  the  interisland 
trade  are  not  sufficient  to  attract  American  capital,  then  certainly  it 
would  be  selfish  exploitation  of  these  islands  of  an  indefensible  char- 
acter to  exclude  vessels  now  in  the  trade  and  impose  the  heavy  burden 
of  higher  freight  rates  in  order  to  induce  American  capital  to  invest 
in  coastwise  vessels,  and  would  furnish  just  ground  for  reproach 
against  a  government  professing  good  will  and  doing  evil.  It  seems 
to  me  that  the  best  provision  of  law  which  could  be  adopted,  so  far  as 
the  interisland  trade  is  concerned,  would  be  to  place  the  matter  wholly 
in  the  discretion  of  the  Commission,  which,  as  conditions  change  and 
warrant  it,  could  make  the  restrictions  in  favor  of  American  and 
Filipino  shipping  greater. 

With  respect  to  the  trade  between  these  islands  and  the  United 
States,  I  concur  fully  in  the  remarks  of  Collector  Shuster  in  his  annual 
report  in  which  he  says: 

At  the  present  time  the  greater  [part  of  the  freight  traffic  between  the  PhiUppines 
and  New  York  is  carried  on  in  foreign  bottoms.  So  far  as  indications  go,  any  law 
which  prevented  the  continuance  of  that  trade  in  foreign  bottoms  until  an  egual 
tonnage  of  cheaply  operated  American  freighters  are  actually  available  to  take  up 
that  trade  and  maintain  healthy  rate  competition,  would  result  in  a  decided  increase 
over  the  present  rates  of  freight.  This  additional  burden  would  fall  upon  the  already 
weakened  resources  of  these  islands  and  such  a  result  would  be  more  than  lamentable 
from  every  standpoint. 

The  tonnage  plying  between  these  islands  and  the  Pacific  coast  is  about  equal  to  the 
present  freight  supply  and  no  change  in  the  present  law  seems  advisable  so  far  as 
trans-Pacific  routes  are  concerned. 

It  is,  therefore,  earnestly  recommended  that  the  present  laws,  so  far  as  they  permit 
foreign  bottoms  to  trade  between  these  islands  and  the  mainland  territory  of  the 
United  States,  Ije  not  changed  for  a  period  of  at  least  five  years  from  July  1,  1904, 
and  that  positive  legislation  to  that  effect  be  had  ]jy  Congress  at  an  early  date. 


OF    THE    PHILIPPIlSrE    ISLANDS,    1900-1903. 


531 


THE    INSULAR   REVENUES. 

The  report  of  the  auditor  shows  that  the  revenues  of  the  islands  for 
the  year  ending  June  30,  1903,  exceeded  those  for  the  year  ending 
June  30,  1902,  as  follows: 

Comparative  statement  of  revenues  of  ilie  Philippine  Islands,  fiscal  years  1902  and  1903, 
exclusive  of  provincial  receipts  and  refundable  collections. 


Customs. 
Postal. 


Internal 

Miscellaneous: 

Ordinary - 

Extraordinary 

City  of  Manila  under  provost-marshal  (exclusive  of  internal  reve- 
nue)   


Total  insular  revenue 

Increase  in  1903 

City  of  Manila 

Increase  in  1903 

Total,  including  city  of  Manila. 

Increase  in  1903 


Fiscal  vear 
1903. 


,215,551.88 

145,702.53 

7,867.01 

595, 350. 95 
567,581.97 


10,  .532, 054. 34 

1,264,341.19 

1, 642, 463. 83 

428, 613. 76 

12, 074, 518. 17 
1, 692, 954. 95 


Fiscal  year 
1902. 


8,398,864.36 
137, 811. 99 
94, 634. 84 

508, 120. 60 
42,571.86 

85,709.51 


9, 267, 713. 15 


1,113,8.50.07 
i6,'38i,"563.'22 


In  the  fiscal  year  1902  receipts  in  the  city  of  Manila  from  July  1  to  August  7, 1901, 
prior  to  the  incorporation  of  the  city  of  Manila,  amounting  to  $82,813.43,  are  included 
in  the  internal  revenues;  and  $85,709.51  was  collected  hy  the  provost-marshal-general 
administrating  the  department  of  receipts  and  disbursements,  making  total  collec- 
tions in  the  city  of  Manila,  under  the  charter  and  otherwise,  $1,282,373.01,  as  against 
$1,542,463.83  for  1903,  an  increase  in  1903  of  $260,090.82. 

Forestry  taxes  collected  in  each  year  are  excluded,  these  collections  being  refund- 
able to  the  several  provinces  in  which  the  timber  was  cut. 

The  income  for  the  year  ending  June  30,  1902,  exclusive  of  the  city 
of  Manila,  was  $9,165,952.1:4:,  the  income  for  the  city  of  Manila  was 
11,199,559.58,  and  the  total  income  was  $10,665,512.02.  The  income 
for  the  year  ending  June  30,  1903,  included  about  $560,000  of  extraor- 
dinary items.  These  were  the  amount  paid  b}^  the  United  States  for 
the  gunboats  turned  over  to  the  Navy,  purchased  out  of  insular  funds; 
and  the  Spanish  insurgent  seized  funds,  turned  over  to  the  insular 
treasury.  During  the  year  w^e  had  the  extraordinary  expense  of 
taking  the  census,  for  which  there  was  appropriated  something  over 
$691,000;  and  in  addition  to  that  wo  had  appropriated  $125,000  for 
the  exposition  board  for  the  preliminary  expense  for  the  Philippine 
exhibit  at  the  Louisiana  Purchase  Exposition.  Added  to  this  were 
the  appropriations  of  $1,000,000  for  the  continuance  of  the  harbor 
works  in  the  port  of  Manila,  $350,000  for  harbor  works  in  the  city  of 
Cebu,  and  $150,000  for  the  harbor  works  in  the  city  of  lloilo.  The 
result  is  that  the  surplus,  which  on  Juno  30,  1902,  amounted  to 
$1,000,000,  has  been  reduced  to  nearly  $2,200,000  in  round  numliers. 
Of  course  the  surplus  Avas  accumulated  for  the  purpose  of  making 
permanent  improvements,  and  its  reduction  by  the  amount  required 
for  the  port  works  in  the  three  cities  is  a  reduction  in  accordance 


532  EEPORTS    OF    THE    CTVTL    OOVERNMENT 

with  the  plan  of  the  Commission.  The  revenues,  in  spite  of  the 
conditions,  have  kept  up,  although  there  has  been  a  slight  falling 
off  during  the  first  four  months  of  the  new  fiscal  year,  as  follows: 
For  the  first  four  months  of  the  fiscal  year  ending  June  80,  1903, 
the  amount  collected  was  $3,012,510.88;  for  the  first  four  months  of 
the  year  ending  June  30,  1904,  $3,492,729.88,  or  a  loss  of  $119,781. 
This  is  exclusive  of  the  income  from  the  city  of  Manila.  The  ten- 
dency to  the  expensive  conveniences  and  the  pressure  for  increase  in 
salaries  in  all  departments  and  bureaus  renders  it  most  difficult  to 
prevent  expenditures  from  outrunning*  our  income.  We  are  anxious 
naturally  to  put  as  much  money  into  permanent  construction  as  possi- 
ble. We  have  as  yet,  however,  no  general  authority  to  borrow  money 
to  pay  for  permanent  improvements,  and  the  cost  falls  on  the  results 
of  taxation.  We  find  it  wiser  to  pay  good  salaries — salaries  in  excess 
of  those  paid  for  the  same  service  in  the  United  States — to  all  who 
occupy  responsible  positions.  The  cost  of  living  is  so  high  in  Manila 
that  a  salary  of  17,000  here  hardl}^  goes  as  far  as  a  salary  of  |5,000  in 
&nj  of  the  smaller  cities  of  the  United  States.  I  am  convinced  that 
we  made  a  mistake  in  fixing  the  salaries  for  the  supreme  judges  at 
$7,000,  and  for  that  of  the  chief  justice  at  $7,500.  The  court  is  of  so 
much  dignity  and  of  so  much  importance  that  we  might  very  well  have 
fixed  the  salaries  of  the  judges  at  $10,000  a  year,  and  that  of  the  chief 
justice  at  $10,600.  We  are  likely  to  lose  by  resignation  three  of  the 
Americans  who  have  constituted  the  court  of  seven  at  the  end  of  their 
service  of  three  3"ears,  and  that  largely  because  the  salary  offers  no 
inducement  to  hold  the  place.  This  is  a  deplorable  condition,  because 
the  value  of  the  supreme  court  depends  largely  on  the  experience  of 
its  members,  and  if  we  are  not  to  obtain  the  benefit  of  the  learning  and 
experience  acquired  on  the  bench  in  the  Spanish  civil  law  by  our 
American  judges  we  lose  much. 

An  examination  of  the  report  of  the  secretary  of  finance  and  justice 
will  show  that  the  extraordinary  expenses  of  the  current  six  months 
provided  for  in  the  appropriations,  if  continued  in  the  same  propor- 
tions for  the  remaining  six  months  of  the  fiscal  year  ending  June  30, 
1904,  would  absorb  the  surplus  and  leave  a  considerable  deficit.  Part 
of  this  extraordinary  expense  is  made  up  by  the  purchase  of  the 
Oriente  Hotel  for  an  office  building,  at  a  cost  of  $675,000  Mexican, 
the  appropriation  of  $450,000  gold  for  the  St.  Louis  Exposition  pur- 
poses, which  includes  not  only  the  direct  appropriation  for  expendi- 
ture by  the  exposition  board  of  $375,000,  but  also  that  of  $75,000  to 
pay  the  expenses  of  sending  fifty  Filipinos  of  education,  culture,  and 
prominence  to  the  United  States  for  purposes  already  stated.  The 
work  is  proceeding  so  rapidly  on  the  port  works  of  Manila  that  it  is 
probable  that  another  heavy  appropriation  will  have  to  be  made  to 
meet  that  expenditure.     It  is  quite  unlikely  that  any  considerable 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  533 

expenditure  for  public  works  and  improvements  of  a  permanent  char- 
acter can  continue  to  be  made  out  of  the  current  revenue,  and  a  deficit 
would  be  exceedingl}'  embarrassing.  Of  course,  if  the  Dingley  tariff 
were  reduced  and  an  impetus  given  to  business  in  the  islands  by  the 
increased  production  of  sugar  and  tobacco  and  their  sale  in  the  United 
States,  the  increase  in  the  revenues  would  probably  keep  pace  with 
the  increase  in  the  expenditures,  but  to  meet  all  contingencies  it  seems 
to  me  that  a  Congressional- act  authorizing  the  issuing  of  bonds  for 
permanent  improvements  in  the  islands,  not  exceeding  85,000,000, 
each  issue  to  be  approved  by  the  Secretary  of  War  and  the  President 
of  the  United  States,  would  not  be  conferring  upon  the  Commission 
or  legislature  of  the  islands  excessive  authority,  and  that  it  is  really  a 
necessary  provision  to  prevent  possible  financial  embarrassment. 

OFFICE   OF   THE   INSULAR  PURCHASING   AGENT. 

The  report  of  the  purchasing  agent,  which  is  attached  hereto  as  an 
exhibit,  shows  the  very  large  amount  of  business  done  by  him  for  the 
purpose  of  supplying  the  departments  with  needed  permanent  equip- 
ment and  consumable  supplies.  His  total  purchases  for  the  year  end- 
ing September  30, 1903,  were  §2,215, 275. 62,  exclusive  of  rice  purchases 
and  carabaos.  Of  this  amount  it  appears  that  over  80  per  cent  has 
been  bought  through  the  merchants  of  Manila.  11  per  cent  bought 
in  the  United  States,  and  the  remainder  in  other  countries.  The  work 
needed  in  taking  charge  of  the  shipments  when  they  arrived  and  in 
distributing  them  for  shipment  to  all  parts  of  the  Archipelago  has 
been  very  heavy. 

In  addition  to  the  supplies  thus  purchased,  under  special  acts  of  the 
Commission,  the  insular  purchasing  agent  has  been  charged  with  the 
duty  of  buying  and  selling  rice,  of  which  he  purchased  to  the  1st 
of  October  $2,151,168.01  and  sold  §2,310,633.06,  Mexican  currency, 
having  on  hand  at  the  present  time  rice  amounting  to  $107,152.81  in 
value.  He  was  also  charged  with  the  business  of  supervising  the  com- 
pletion of  the  contract  with  Keylock  &  Pratt  for  10,000  head  of  cara- 
baos bought  in  Shanghai,  to  be  delivered  at  the  rate  of  500  per  month. 
At  this  date  only  773  have  })een  delivered,  and  they  are  being  sold  as 
rapidly  as  they  can  be  permanently  immunized  against  rinderpest  by 
the  bureau  of  government  laboratories.  The  insular  purchasing  agent 
is  also  charged  with  the  duty  of  maintaining  and  supervising  a  trans- 
portation department  for  the  city  of  Manila.  New  stables  are  being 
erected  for  him  on  the  San  Lazaro  estate,  and  when  they  are  com- 
pleted he  will  furnish  all  the  transportation  for  all  the  insular  bureaus, 
including  the  bureau  of  health. 

The  report  shows  the  handling  and  shipping  of  $3,281,000  worth  of 
property  and  the  accounting  for  §5,021,015  of  United  States  currency. 
There  has  been  taken  from  the  purchasing  agent  all  obligation  to  pui'- 


534  REPORTS  OF  THE  CIVIL  GOVERNMENT 

chase  food  supplies,  which  arc  now  bou<>lit  directly  by  the  commissary 
department  of  the  constal)ulary  and  are  furnished  for  sale  at  cost  price, 
with  10  per  cent  added,  to  all  civil  employees  outside  the  city  of 
Manila. 

PROVINCIAL   AND   MUNICIPAL   GOVERNMENTS. 

THE   GOVERNMKNT   OF   THE   MORO   PROVINCE. 

Early  in  the  present  calendar  year  the  Secretary  of  War  called  the 
attention  of  the  civil  governor  to  the  fact  that  the  time  seemed  now  to 
have  arrived  when  a  more  definite  form  of  g-overnment  might  be  given 
to  the  parts  of  the  Archipelago  occupied  by  the  Moros.  Accordingly, 
a  bill  for  the  government  of  the  Moro  Province  was  drafted.  It  was 
submitted  to  General  Davis,  then  commanding  the  division,  and  who 
was  formerly  department  commander  of  Mindanao  and  Jolo,  and  was 
thus  familiar  with  Moro  conditions.  Subsequently  the  bill  as  revised 
by  General  Davis  was  presented  to  the  Commission,  and  in  the  Com- 
mission it  received  many  additions  and  changes.  It  became  a  law  on 
the  1st  of  June,  1903,  but  did  not  take  effect  until  the  15th  of  July 
next  ensuing. 

The  act  makes  the  Moro  Province  to  consist  of  all  the  islands  of 
Mindanao  and  its  adjacent  islands,  except  the  provinces  of  Misamis 
and  Surigao,  which  had  theretofore  been  established  as  Christian  Fili- 
pino provinces  under  the  general  provincial  act.  The  law  takes  away 
from  the  province  of  Misamis  the  town  and  district  of  Iligan,  in  which 
there  are  a  great  number  or  Moros  resident,  and  also  somewhat 
reduces  the  boundaries  of  the  province  of  Surigao.  The  Moro  Prov- 
ince also  includes  the  island  of  Isabela  de  Basilan  and  all  the  islands  to 
the  south  of  Mindanao  in  the  Archipelago.  It  embraces  within  the 
boundaries,  therefore,  all  the  Moros  in  the  Archipelago  except  a  small 
number  of  them  resident  in  the  south  half  of  the  island  of  Paragua  or 
Palawan  and  possibly  a  few  who  live  on  the  west  coast  of  the  province 
of  Misamis,  near  the  towns  of  Misamis  and  Oroquieta.  The  province 
is  divided  into  five  districts — the  district  of  Zamboanga,  the  district  of 
Lanao,  the  district  of  Cotabato,  the  district  of  Davao,  and  the  district  of 
Jolo.  The  executive  head  of  the  province  is  the  provincial  governor, 
who  has  as  his  assistants  the  provincial  secretary,  the  provincial  attor- 
ne}^  the  provincial  engineer,  the  prov^incial  superintendent  of  schools, 
and  the  provincial  treasurer.  The  ofiicers  named,  with  the  governor, 
being  six  in  number,  constitute  the  legislative  council  for  the  prov- 
ince, and  in  case  of  an  even  division  the  proposition  having  the  vote 
of  the  governor  prevails.  For  the  support  of  the  province  there  are 
assigned  all  the  customs  receipts  from  the  port  of  Jolo,  the  port  of 
Zamboanga,  and  the  new  port  of  Bongao,  making  about  $130,000  gold 
a  year.  Internal-revenue  taxes  are  to  be  collected  in  towns  organized 
under  the  municipal  code,  and  such  other  taxes  as  the  legislative  coun- 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  535 

cil  may  see  lit  to  impose.  The  leg-islative  council  is  authorized  to 
create  numicipalities  under  the  municipal  code  or  to  modify  its  terms 
to  suit  local  conditions.  It  is  authorized  to  organize  a  public  school 
system  and  to  vary  the  character  of  the  schools  in  different  districts 
as  the  special  and  local  necessities  require.     It  is  authorized: 

{h)  To  enact  laws  for  the  creation  of  local  governments  among  the  Moros  and 
other  non-Christian  tribes,  conforming  as  nearly  as  possible  to  the  lawful  customs  of 
such  peoples,  and  vesting  in  theii* local  or  tribe  rulers  as  nearly  as  possible  the  same 
authority  over  their  people  as  they  now  exercise,  consistent  with  the  act  of  Congress 
entitled  "An  act  temporarily  to  provide  for  the  administration  of  the  affairs  of  civil 
government  in  the  PhiUppine  Islands,  and  for  other  purposes,"  and  following 
as  nearly  as  possible  in  the  provisions  of  these  laws  any  agreements  heretofore  made 
by  the  United  States  authorities  with  such  local  or  tribe  rulers  concerning  the  pow- 
ers and  privileges  which  under  American  sovereignty  they  are  by  such  agreements 
to  enjoy:  Provided,  That  they  have  not  by  their  conduct  and  the  breach  of  the 
agreements  forfeited  such  powers  and  privileges. 

(i) .  To  enact  laws  investing  the  district  governors  in  their  respective  districts,  or 
other  provincial  or  district  officers  with  the  power  of  adjusting,  under  the  sujier- 
vision  of  the  provincial  governor,  all  differences  between  sultans,  dattos,  and  any 
independent  local  authorities,  and  of  enforcing  their  decisions  upon  such  differences. 

{j)  To  enact  laws  which  shall  collect  and  codify  the  customary  laws  of  the  Moros 
as  they  now  obtain  and  are  enforced  in  the  various  parts  of  the  Moro  Province 
among  the  Moros,  modifying  such  laws  as  the  legislative  council  think  best  and 
amending  them  as  they  may  be  inconsistent  with  the  provisions  of  the  act  of  Con- 
gress entitled  "An  act  temporarily  to  provide  for  the  administration  of  the  affairs 
of  civil  government  in  the  Philipi^ine  Islands,  and  for  other  purposes,"  and  to  pro- 
vide for  the  printing  of  such  codification,  when  completed,  in  English,  Arabic,  or 
the  local  Moro  dialects  as  may  be  deemed  wise.  The  Moro  customary  laws  thus 
amended  and  codifie<l  shall  apply  in  all  civil  and  criminal  actions  arising  between 
Moros.  In  all  civil  and  criminal  actions  arising  between  members  of  the  same  non- 
Christian  tribe  other  than  Moros,  unless  otherwise  provided  by  the  legislative  coun- 
cil, the  customary  laws  of  such  non-Christian  tribe,  if  consistent  with  the  act  of 
Congress  above  mentioned,  and  if  defined  and  well  understood,  shall  govern  the 
decision  of  the  cause  arising,  but  if  there  be  no  well-defined  customary  laws,  or 
they  are  in  conflict  with  such  act  of  Congress,  then  the  cases  shall  be  determined  by 
the  criminal  or  civil  code  according  to  the  laws  of  the  Philippine  Islands  until  the 
legislative  council  shall  make  other  provision.  In  actions,  civil  or  criminal,  arising 
between  a  Moro  and  a  member  of  a  non-Christian  tribe,  or  between  a  Moro  and  a 
Christian  Filipino,  or  an  American  or  a  subject  or  citizen  of  a  foreign  country,  the 
criminal  code  and  the  substantive  civil  law  of  the  Philippine  Islands  shall  apply  and 
be  enforced. 

(/j)  T(j  enact  laws  for  the  organization  and  procedure  of  district  courts  to  consider 
and  decide  civil  and  criminal  actions  arising  between  Moros,  between  members  of 
non-Christian  tribes,  and  between  Moros  and  members  of  other  non-Christian 
tribes.  The  district  court  shall  be  presided  over  by  the  secretary  of  the  district, 
and  the  other  members  of  the  court  shall  be  appointed  by  the  district  governor  and 
shall  vary  with  the  race  or  tribe  of  the  litigants,  so  that  where  the  action  arises 
between  Moros,  there  shall  be  at  least  two  and  not  more  than  four  Moros  upon  the 
court;  when  it  arises  between  mtsmljers  of  otlier  non-Christian  tribes  there  may 
be,  if  practicable,  ujion  the  court  members  from  such  non-Christian  tribes,  and 
when  the  litigation  arises  between  Moros  and  members  of  other  non-Christian 
tribes  there  shall  l)e  at  least  one  Moro  member  of  the  court  and  at  least  one  mem- 
ber from  the  tribe  of  the  pagan  litigant:  Provided,  however,  That  judgments  of  said 


58G  IIKPOUTS    OK    TIIK    OIVTL    (lOVERNMENT 

i-ourts  shall  not  bo  given  effect  unless  approved  by  the  governor  of  the  district  in 
which  the  court  is  held:  A»d  proviilrd  further,  That  in  case  of  sentence  of  death  or 
ini])risonnient  for  a  longer  period  of  time  than  ten  years,  such  sentence  shall  not 
be  executed  unless  approved  by  the  provincial  governor.  But  the  legislative  council 
may,  when  it  thinks  proper,  provide  by  law  that  civil  and  criminal  actions  arising 
between  a  Moro  and  a  member  of  another  non-Christian  tribe  shall  be  tried  in  the 
ct)nrt  of  first  instance  or  in  the  court  of  a  convenient  justice  of  the  peace,  according 
to  the  nature  of  the  action  and  the  proper  and  usual  jurisdiction  of  the  court  of  first 
instance  or  the  justice  of  the  peace.  The  legislative  council  shall  prescribe  a  sim- 
ple procedure  for  the  district  courts  and  require  a  written  record  of  its  proceedings. 

(/)  To  enact  laws  for  the  abolition  of  slavery  and  the  suppression  of  all  slave 
hunting  and  slave  trade. 

(m)  To  regulate  by  statute  the  use,  registration,  and  licensing  of  boats  of  Moro  or 
pagan  construction  of  less  than  10  tons  measurement,  which  shall  be  followed  by  col- 
lectors of  customs  in  the  Moro  Province,  the  provisions  of  the  customs  administrative 
act  and  regulations  of  ihe  insular  collector  of  customs  to  the  contrary  notwith- 
standing. 

It  will  be  seen  that  the  Commission  has  granted  to  the  legislative 
council  a  very  large  measure  of  discretion  in  dealing  with  the  Moros 
and  in  preserving  as  far  as  possible,  consistent  with  the  fundamental 
act,  the  customs  of  the  Moros,  the  authority  of  the  dattos,  and  a  sys- 
tem of  justice  in  which  Moros  should  take  part. 

One  of  the  serious  causes  of  friction  in  the  Moro  land  has  been  the 
application  of  coastwise  trade  regulations  to  small  Moro  craft.  This 
is  now  sought  to  be  avoided  by  allowing  the  legislative  council  to  make 
proper  regulations  for  all  Moro  craft  under  It)  tons. 

The  law  provides  for  the  appointment  by  the  provincial  governor, 
subject  to  the  approval  by  the  legislative  council,  of  governors,  treas- 
urers, and  other  officers  of  the  live  different  districts  of  the  province. 
The  education  of  the  Moro  Province  presents  such  a  different  prol)lem 
from  that  of  the  Christian  Filipinos  that  it  was  deemed  unwise  to  pro- 
vide for  an}'  but  a  formal  relation  between  the  school  system  of  the 
Moro  Province  and  that  which  prevails  in  the  rest  of  the  archipelago, 
and  the  Moro  Province  is  left  to  pay  its  own  school  expenses  and  to 
arrange  such  a  system  as  shall  meet  and  overcome  the  peculiar  obsta- 
cles that  now  have  to  be  met  and  overcome  in  the  education  of  Moro 
children.  The  constabulary  sj^stem  has  been  extended  into  the  Moro 
Province  as  an  immediate  branch  of  the  constabulary  system  of  the 
islands.  It  is  thought  that  it  will  be  entirely  possible  to  enlist  Moros 
and  make  successful  and  efficient  military  police  of  them  under  Ameri- 
can officers;  and  the  expense  of  the  constabulary  will  be  met  out  of 
the  insular  treasury. 

By  section  27  it  is  provided  that — 

Courts  of  first  instance  and  justices  of  the  peace  in  the  Moro  Province  shall  not 
have  jurisdiction  to  try  civil  or  criminal  actions  arising  between  Moros  or  arising 
between  non-Christians,  or,  except  as  otherwise  provided  by  the  legislative  council, 
actions  arising  between  Moros  and  other  non-Christians,  and  the  existing  laws  of 
the  Philippine  Islands  are  hereby  amended  accordingly:  Provided,  honrver.  That  in 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  537 

accordance  with  paragraph  {k)  of  section  thirteen  of  this  act,  the  legislative  council 
may  by  law  vest  jurisdiction  to  try  cases  between  Moros  and  other  non-Christians  in 
such  courts:  And  provided  further,  Tliat  the  court  of  first  instance  shall  have  juris- 
diction in  all  habeas  corpus  cases,  no  matter  Ijetween  whom  arising,  to  talie  cogni- 
zance of  the  petition  for  the  release  of  any  person  within  its  territorial  jurisdiction, 
to  issue  process,  to  hear  the  evidence,  and  to  discharge  the  prisoner  or  to  remand 
him  to  custody  in  accordance  with  the  provisions  of  the  chapter  on  habeas  corpus  in 
the  code  of  civil  procedure. 

This  second  proviso  was  adopted  to  enable  the  court  of  first  instance 
to  render  its  aid  whenever  called  upon  to  free  persons  from  slavery 
and  thus  to  furnish  a  means  of  carrying-  out  the  inhibition  against 
slavery  contained  in  the  so-called  Philippine  act  of  Congress,  reenacted 
in  paragraph  (l)  of  section  li  above  quoted. 

AH  laws  passed  by  the  legislative  council  take  effect  at  the  time 
fixed  by  the  legislative  council,  subject  to  amendment  or  annulment  by 
the  Commission.  Provision  is  made  in  the  act  for  the  appointment 
of  military  ofificers  to  fill  the  civil  positions  by  the  act  created  and  for 
the  payment  to  them  of  an  amount  equal  to  20  per  cent  of  their  sal- 
aries as  military  officers  in  lieu  of  their  allowances  for  quarters,  forage, 
and  other  things. 

The  first  governor  of  the  province  apiDointed  is  Major-General 
Leonard  Wood,  the  military  commander  of  the  department  of  Min- 
danao and  Jolo.  This  union  of  the  civil  and  the  military  power  in 
one  head  seems  to  be  admirably  adapted  to  successful  administration 
in  the  Moro  Province,  although  it  would  be  of  very  doubtful  efficacy 
in  the  whole  of  the  Philippine  Islands.  The  Moro  is  himself  a  soldier 
and  recognizes  with  reluctance  any  other  authority  than  that  which  i.s' 
clothed  with  immediate  control  of  military  forces.  The  appointments 
of  the  other  executive  oflacers  of  the  provinces  were  made  at  the  same 
time  and  the  legislative  council  began  its  work.  I  inclose  herewith 
the  copies  of  its  acts  passed  down  to  the  time  of  rendering  this  report 
and  submitted  to  the  Commission  and  approved  by  it,  as  Exhibit  S. 

The  present  conditions  in  the  Moro  Province  are  not  as  satisfactory  as 
they  might  be.  The  campaigns  of  General  Baldwin  and  Captain  Persh- 
ing in  and  about  the  Lake  Lanao  district  have  resulted  in  subduing  the 
wild  Moros  of  that  district  so  that  there  is  no  organized  armed  resistance 
to  the  sovereignty  of  the  United  States.  The  predatory  ha])its  of  the 
Moro  remain,  however,  and  from  time  to  time  reports  come  of  the 
ro))bery  or  killing  of  American  soldiers  by  marauding  bands  of  Moros 
whose  identity  it  is  difficult  to  establish.  Still  the  (picstions  presented 
are  not  of  real  difficult}^  and  involve  only  patience  and  firmness  in  their 
solution.  The  Lake  Lanao  country  is  a  beautiful  country,  and  the 
Moros  who  inhabit  it  seem  to  be  fairly  good  agriculturists.  The  Moros 
of  Zaiuboanga  and  of  the  valley  of  the  Kio  Grande  del  Mindanao  are 
pacified  and  make  no  trouble  in  accepting  the  regime  under  the  new 
Moro  law.  In  Jclo,  however,  wc  have  a  condition  that  needs  thorough 
and  drastic  treatment.     The  Bates  treaty  may  have  been  very  useful 


588  REPORTS    OF    THE    CIVIL    GOVERNMENT 

in  st:i3'incr  tho  hand  of  the  Mores  and  reducing  the  necessity  for  the 
use  of  United  States  troops  in  the  Sulu  Archipelago  at  a  time  when 
they  were  needed  badly  in  other  parts  of  the  Philippines,  but  the 
power  and  immunity  recognized  in  that  trcat}^  as  l)el()iioiiio-  to  the 
Sultan  of  Jolo  have  not  resulted  in  good  government  for  the  Moros 
themselves,  but  have  brought  about  a  condition  of  chaos  and  petty 
wars,  of  murder  and  rapine,  and  intriguing  conspiracies  of  one  datto 
against  another  and  of  dattos  against  the  Sultan  which  the  good  of 
eveiybody  requires  us  to  put  an  end  to.  It  is  a  condition  precedent 
to  the  continuance  upon  the  United  States  of  the  binding  effect  of  the 
Bates  treat\^  that  the  Sultan  and  the  signing  dattos  should  be  powers 
capable  of  subduing  lawlessness  within  their  respective  jurisdictions. 
Either  the  power  or  the  will  has  been  lacking,  and  the  necessity  arises 
for  teaching  them  severe  lessons  of  obedience  to  the  government  and 
the  sense  of  obligation  to  maintain  law  and  order  between  local  dattos. 
The  establishment  of  courts  partly  native  will  doubtless  assist  materi- 
ally in  settling  many  questions  that  now  have  to  be  settled  ])y  the 
sword.  The  problem  in  dealing  with  the  Moros  is  not  very  different 
from  that  which  Sir  Stamford  Raffles  and  Sir  Frank  Swettenham  have 
had  to  solve  in  dealing  with  the  Malays  in  the  Malay  Peninsula. 
To-day  the  Malay  in  the  Straits  Settlements  is  most  peaceable  and  law- 
abiding.  The  time  was  in  that  peninsula  when  every  Malay  went 
armed.  To-day  every  Moro  is  armed  with  his  kris,  and  if  he  has  a 
gun,  with  a  gun.  Ultimately  the  government  must  compel  the  Moros 
to  give  up  their  arms  and  to  trust  to  the  peace  authorities  to  preserve 
their  rights.  A  judicious  preservation  of  the  authority  of  local  dattos, 
and  making  them  responsible  for  the  preservation  of  order  among  their 
people,  will  doubtless  work  well  here,  but  their  absolute  subordination 
to  the  sovereignty  of  the  United  States,  which  was  not  made  as  clear  by 
the  Bates  treat}^  when  translated  into  their  language  as  it  might  have 
been,  is  a  sine  qua  non  to  the  maintenance  of  good  government.  The 
Moro  does  not  understand  popular  govermnent  and  does  not  desire  it, 
and  he  is  not  likely  to  desire  it  until  he  is  changed  by  education  and 
the  introduction  of  civilized  life  in  his  neighborhood. 

The  Sultan  of  Jolo  and  the  dattos  under  him,  with  whom  General 
Bates  entered  into  an  agreement,  have  not  complied  with  the  terms  of 
that  agreement  in  maintaining  order  among  those  who  acknowledge  in 
a  perfunctory  way  allegiance  to  them.  They  have  not  punished  wrong- 
doers and  their  whole  system  of  government  seems  to  be  one  solely  for 
the  exaction  of  taxes.  The  Sultan  of  Jolo  is  a  gambler  and  an 
intriguer,  with  not  a  spark  of  courage  or  patriotic  and  paternal  interest 
in  his  people.  So  far  as  the  Bates  agreement  could  be  regarded  as  a 
contract  of  the  Executive  of  the  United  States  Government,  it  has  long 
ceased  to  be  of  binding  force,  because  the  Sultan  long  ago  forfeited  all 
his  rights  under  it  by  his  violation  of  the  rights  he  assumed.  When 
General  Wood  was  appointed  governor  of  the  Moro  Province,  with 


OF    THE    PHILIPPINE    ISXANDS,   1900-1903.  539 

the  knowledge  which  })oth  of  iis  had  of  the  nocessit}^  for  the  abroga- 
tion of  the  Bates  treat}'  and  the  gross  violation  of  his  obligations  under 
it  b}^  the  Sultan,  we  agreed  that  it  would  be  well  for  him  to  accumulate 
the  data  showing  in  how  many  instances  the  Sultan  had  failed  when 
called  upon  b}^  the  United  States  authorities  to  preserve  order  among 
his  people,  with  a  view  to  formal  action  in  notifying  him  of  the  abro- 
gation of  the  treaty.  I  append  the  report  of  General  Wood  as 
Exhibit  T  upon  this  pha.sB  of  the  Moro  question,  and  concur  fullj^ 
in  his  recommendation  that  for  the  causes  shown  by  him  in  the  exhibits 
which  accompany  his  report  that  the  Sultan  and  the  signing  dattos  be 
advised  of  the  abrogation  of  the  Bates  treaty  and  that  the  same  is  no 
longer  binding  on  the  United  States  or  the  insular  government  and 
will  not  be  respected. 

Among  the  laws  which  the  legislative  council  of  the  Moro  Province 
has  enacted  will  be  found  one  denouncing  kidnapping  of  persons  with 
a  view  to  making  them  slaves,  and  the  detention  of  persons  in  slavery. 
General  Wood  has  examined  the  question,  as  have  other  members  of 
the  legislative  council,  and  has  reached  the  conclusion  that  the 
announcement  of  the  policy  of  the  United  States  upon  this  question 
ma}'  as  well  be  radical  in  the  beginning.  General  Wood  advises  me 
orall}^  that  the  proclamation  of  the  passage  of  the  act  in  the  river 
valley  above  Cotabato  has  been  received  with  acquiescence  by  the 
dattos.  It  will  probably  give  more  trouble  in  Jolo.  The  fact  is, 
however,  that  the  military  question  in  dealing  with  the  Moros  is  a 
simple  one,  and  is  not  at  all  as  difficult  as  that  which  confronted  the 
arm}'  in  the  Christian  Filipino  provinces.  The  Moros  do  not  light  a 
guerilla  warfare.  They  retreat  to  their  forts  and  bid  defiance  to  the 
foe,  and  thus  expose  themselves  to  an  attack  by  modern  artillery  and 
other  modern  methods  of  overcoming  insufficient  fortifications.  They 
are  easily  whipped,  and  though  the  whipping  may  have  to  be  repeated 
once  or  twice,  its  effect  ultimately  is  very  salutary.  Force  seems  to 
be  the  only  method  of  reaching  them  in  the  first  instance,  and  is  the 
only  preparation  for  the  beginning  of  civilized  restraints  among  them. 
It  is  probable  that  the  government  is  itself  subject  to  criticism  for 
delay  in  giving  to  the  Moro  region  something  definite  in  the  form  of 
a  government,  but  the  vim  and  interest  with  which  the  government 
of  the  Moro  Province  has  been  launched  give  every  assurance  of  a 
satisfactory  result.  A  continuance  of  the  conditions  which  the  exhibits 
submitted  by  General  Wood,  and  hereto  appended,  show  to  exist  in 
Jolo,  Siassi,  and  other  islands  of  the  Sulu  Archipelago  would  certainly 
be  a  disgrace  to  the  United  States  Government  and  to  the  insular  gov- 
ernment which  is  made  responsible  b}'  the  Philippine  act  for  the  main- 
tenance of  law  and  order  among  the  people.  It  is  thought  that  another 
year  will  bring  an  improvement  in  conditions  so  great  that  even  the 
Moros  themselves  will  understand  the  advantage  of  it. 


540 


REPORTS    OF   THE    CIVIL    GOVERNMENT 


TIIK    OlIRISTIAN    FIIJl'INO   TKOVINCES. 

A  severe  !i<!;riciiltural  depression  in  tiie  provinces,  together  with  the 
intort'erencc  with  tax  collections  by  the  cholera,  has  caused  a  number 
of  the  provinces  to  run  behind  in  the  matter  of  their  income,  and  has 
required  the  insular  j^-overnment  to  lend  money  to  them.  The  amount 
of  money  loaned  is  shown  in  the  following-  list: 

List  of  loans  to  provinces  during  the  period  September  1,  1902,  to  October  31,  1903. 


Province. 


Abra 

Albay 

.\iitiiiuc 

Bataiigas 

Capiz 

Cavite 

Mindoro 

Misami.s 

Nueva  Ecija 

Paragua 

Rizal 

Samar 

Union 


Total  

Appropriated  moneys  undrawn  October  31,  1903: 

For  loan  to- 
Occidental  Negros 

Zambale.s 

noilo 


Philippine 
currency. 


f  25, 000. 00 


2,000.00 
15, 000. 00 


5, 000. 00 
15,000.00 


2, 000. 00 
5, 000. 00 


Mexican 
currency. 


¥•12, 550. 00 


12, 250. 00 
62, 250. 00 


50,000.00 
0,  .500. 00 


1.5,  ,300. 00 
13,350.00 
2, 600. 00 
31,000.00 
15, 960. 00 


221,760.00 


50, 000. 00 


List  of  repayments  by  provinces  during  the  period  September  1,  1902,  to  October  31,  1903, 
of  loans  made  by  the  insular  government  during  that  period  and  prior  thereto. 


Province. 

United  States 
currency. 

Mexican 
currency. 

82, 500. 00 
2,500.00 
2,500.00 
5,000.00 

Bohol  

Iloco.s  Norte 

P-6, 500. 00 

2,500.00 

Marinduque 

6, 500. 00 

2,500.00 

Nueva  Ecija 

7, 050. 00 

2,  .500. 00 
2, 500. 00 

Sorsogon 

Total 

22, 500. 00 

20, 050. 00 

In  a  number  of  the  provinces  it  has  been  deemed  wise  to  cut  down 
the  cost  of  officers  by  consolidating  the  offices  of  treasurer  and  super- 
visor, usuall}^  filled  by  Americans,  into  the  office  of  treasurer-super- 
visor. This  was  possible  in  provinces  where  there  is  very  little  money 
for  improvements,  because  in  such  provinces  the  supervisors  of  roads 
and  improvements  have  few  duties  to  perform.  The  supervisors  who 
were  released  from  office  were  provided  for  in  the  office  of  the  con- 
sulting engineer  to  the  Commission,  who  was  greatly  in  need  of 
engineers  for  the  purpose  of  carrying  on  insular  road  construction,  in 
which  the  Commission  is  now  enfrasred. 


OF   THE    PHILIPPINE    ISLANDS,   1900-1903. 


541 


MUNICIPALITIES. 

In  the  spring  the  Commission  passed  a  resolution  adopting  the  policy 
of  a  reduction  of  the  number  of  municipalities  in  each  province.  The 
municipalities  also  had  run  behind  in  their  incomes  without  reducing 
their  expenditures,  and  it  became  perfectl}^  evident  that  many  of  them 
were  not  able  to  maintain  decent  government  with  the  tax-producing 
capacity  which  they  had  sliown.  The  Filipino  members  of  the  Com- 
mission during  the  last  six  months  have  visited  all  the  Christian  prov- 
inces, and,  after  a  conference  with  the  provincial  boards  and  with  the 
municipal  presidentes  called  in  convention,  have  made  report  to  the 
Commission  in  favor  of  a  union  of  municipalities  and  a  reduction  in 
number.  The  Commission  adopted  their  report  and  enacted  the 
necessary  laws.     The  reduction  is  shown  in  the  following  table: 


Province. 


Abra 

Albay 

Ambos  Camarines 

Antique 

Bataan 

Batangas 

Bohol 

Bulacan 

Cagayan 

Capiz 

Cavlte 

Cebu 

Ilocos  Nortu 

Ilocos  Sur 

Iloilo 

Isabela 

LaLaguna 

La  Union 


Municipalities. 

Former 

Present 

number. 

number. 

12 

12 

27 

27 

43 

35 

21 

11 

12 

8 

22 

15 

35 

32 

25 

13 

33 

22 

34 

22 

23 

11 

57 

41 

15 

10 

24 

14 

51 

17 

15 

11 

30 

19 

15 

12 

Province. 


Leyte 

Masbate 

Misamis 

Negros  Occidental 
Negros  Oriental  . . 

Nueva  Ecija 

Pampanga 

Pangasinan 

Rizal 

Romblon 

Samar 

Sorsogon 

Surigao 

Tarlac 

Tayabas 

Zambales 

Total 


Municipalities. 


Former     Present 
number,    number. 


1,035 


34 
13 
10 
21 
14 
15 
16 
25 
16 

6 
25 
16 
29 

9 
27 
15 


623 


The  above  list  shows  a  total  reduction  of  412  municipalities.  The 
provinces  of  Benguct,  Lepanto-Bontoc,  Mindoro,  Moro,  Nueva  Viz- 
caya  and  Paragua  are  not  included  above,  as  they  have  special  organi- 
zation, independent  and  apart  from  the  municipal  code. 

In  doing  this  work  the  Commission  has  had  to  run  counter  to  local 
prejudice.  It  is  hard  to  convince  municipal  officials  enjoying  office 
that  the  public  good  requires  any  measure  which  will  in  effect  prevent 
their  continuing  to  hold  office,  and  there  is  much  local  pride  likely  to 
be  hurt.  It  is  confidently  expected,  however,  that  the  fusion  of  the 
municipalities  thus  effected  will  very  greatly  increase  the  efficiency  of 
the  municipal  governments  by  reducing  expenses  and  furnishing  a 
much  larger  revenue  in  each  town.  The  work  has  been  very  well 
done  by  the  Filipino  members  and  the  Commission  is  greatly  indebted 
to  them  for  the  time  and  trou))le  spent  in  solving  a  difficult  pro])lem. 
Municipal  treasurers  now  selected  by  the  council  have  not  proven  to 
be  efficient  officers.  By  law  the  council  of  a  municipality  is  obliged 
to  devote  a  certain  part  of  the  income  of  the  town  to  schools,  but  in 

23181—04 35 


542  KKPOKTS    OF    THE    CIVIL    GOVERNMENT 

too  many  instances  it  has  developed  that,  in  the  anxiety  to  secure  his 
own  salary,  the  presidente  has  induced  the  council  and  the  municipal 
treasurer  to  appropriate  from  what  are  properly  school  funds  to  pay 
the  salaries  of  municipal  officials.  The  office  of  municipal  treasurer 
has  therefore  been  classified  as  part  of  the  classilied  line  service  and 
provision  made  for  appointment  to  it  by  the  provincial  board.  The 
municipal  treasurer  will  also  act  as  deputy  provincial  treasurer.  Thus 
a  large  body  of  persons  will  be  led  to  prepare  themselves  for  civil 
service  examinations  for  the  office  of  municipal  treasurer.  Their 
experience  will  fit  them  for  promotion  to  the  office  of  provincial  treas- 
urer, which  will  hereafter  be  filled  largely  from  such  material.  The 
difficulty  about  using  Filipinos  for  provincial  treasurers  heretofore 
has  been  that  the  duties  of  the  office  are  so  difficult  that  Filipinos, 
with  a  knowledge  of  Spanish  only,  and  without  any  familiarty  with 
the  auditing  methods  of  the  auditor's  bureau  and  its  requirements,  are 
unable  to  perform  them.  This  change  can  not  but  strengthen  munic- 
ipal governments  and  at  the  same  time  bring  into  use  for  higher  office 
trained  Filipino  material. 

The  truth  is  that  the  municipal  governments  have  not  been  as  satis- 
factory in  their  operations  as  could  be  wished.  By  the  misuse  of  the 
school  fund  already  referred  to,  the  native  school-teachers  have  been 
compelled  to  go  without  their  salaries.  The  municipal  police  have 
also  gone  unpaid  and  in  many  instances  had  not  been  made  efficient 
because  they  were  used  as  the  personal  servants  of  the  municipal  pres- 
identes.  It  is  hoped  that  the  increase  of  the  resources  of  the  towns 
by  the  fusion  of  municipalities  may  accomplish  some  reform  in  these 
matters  and  the  coming  of  better  times  in  agricultural  and  busi- 
ness way  may  also  assist.  In  order  to  make  the  municipal  police  a 
more  efficient  body,  a  law  was  passed  by  the  Commission,  No.  781,  the 
first  and  second  sections  of  which  are  as  follows: 

Section  1.  The  civil  governor,  or  the  provincial  governor  with  the  approval  of  the 
civil  governor,  is  hereby  authorized,  whenever  in  his  judgment  the  public  interest 
will  be  subserved  thereby,  to  place  the  municipal  police  of  the  respective  municipal- 
ities of  any  province  under  the  control  of  the  senior  inspector  of  constabulary  on 
duty  in  the  province  at  the  time.  The  senior  inspector  in  such  case  is  hereby 
authorized  and  empowered,  under  the  general  supervision  of  the  provincial  governor, 
to  control  and  direct  the  movements  of  the  municipal  police,  and,  with  the  approval 
of  the  provincial  governor,  to  discharge  any  member  of  the  police  force  and  substi- 
tute a  fit  and  suitable  resident  of  the  municipality  in  his  place."  It  shall  be  the  duty 
of  the  senior  inspector  when  thus  placed  in  charge  of  the  municipal  police  of  a  prov- 
ince to  see  that  they  are  properly  uniformed,  drilled  and  disciplined.  When  thus 
vested  with  authority  over  the  municipal  police  he  shall  see  that  all  lawful  orders  of 
the  provincial  governor,  municipal  president,  and  others  in  authority  are  executed 
as  provided  by  the  municipal  code,  and  amendments  thereof,  and  shall  further  see 
that  all  proper  arrests  are  made  for  violations  of  law  of  municipal  ordinances,  and 
in  case  of  emergencies  is  authorized,  vmder  the  general  supervision  of  the  provincial 
governor,  to  iinite  the  forces  of  the  various  municipalities  of  the  province  in  sup- 
pressing ladronism  or  brigandage  or  other  grave  violations  of  the  law  which  threaten 
the  peace  of  the  entire  community;  and  he  may  also  unite  the  constabulary  forces 


OF   THE    PHILIPPINE    ISLANDS,   1900-1903.  543 

under  his  command  with  the  municipal  forces  in  the  execution  of  his  authority  for 
this  purpose. 

Sec.  2.  It  is  hereby  made  the  duty  of  the  provincial  board  of  each  and  every 
province  to  jirescribe  a  suitable  uniform  for  the  municipal  police  of  each  and  every 
mmiicii^ality,  with  a  proper  insignia  to  indicate  the  municipality  to  which  the  police 
belong.  Authority  is  also  hereby  given  the  provincial  board  of  each  province  to  fix 
the  number  of  jjolice  which  is  required  to  be  maintained  by  each  and  every  munici- 
pality of  the  province.  In  the  event  that  the  provincial  board  shall  find  that  any 
municipality  is  unable  properly  to  uniform  and  maintain  the  number  of  policemen 
fixed  by  the  provincial  board,  the  latter  is  authorized  to  vote  necessary  aid  for  the 
maintenance  of  such  police  out  of  provincial  funds.  In  the  event  the  i)rovincia] 
board  should  not  have  provincial  funds  adequate  for  this  purpose  it  may  apply  to 
the  Commission  for  aid  in  this  behalf. 

This  system  had  been  adoped  in  the  province  of  La  Union  before 
the  passage  of  the  hiw  and  had  worked  well,  and  it  was  the  success  in 
Union  that  suggested  the  passage  of  a  general  law  on  the  subject.  It 
has  not  been  adopted  in  many  provinces,  but  where  adopted  it  has 
accomplished  good  results. 

Outside  of  the  city  of  Manila,  the  two  great  commercial  centers  of 
the  islands  are  lloilo  and  Cebu.  Under  the  Spanish  regime  the  town 
of  lloilo  did  not  have  more  than  10,000  inhabitants,  and  the  town  of  Cebu 
did  not  exceed  in  population  15,000.  There  were,  however,  in  the 
immediate  neighborhood  of  the  towns,  which  were  really  part  of  the 
commercial  centers,  three  or  four  towns  which  ought  to  have  been 
included  for  purposes  of  economy  in  government.  By  the  acts  already 
referred  to,  lloilo  has  had  annexed  to  it  the  towns  of  Molo,  Jaro,  La 
Paz,  and  another,  which  will  now  make  a  city  of  from  forty  to  fifty 
thousand.  The  same  thing  is  true  of  the  town  of  Cebu,  which,  being 
united  with  San  Nicolas,  a  town  separated  by  a  small  creek  from  Cebu, 
and  containing  15,000  inhabitants,  and  other  towns  in  the  neighborhood, 
will  also  have  a  population  of  about  50,000.  It  will  probably  be  nec- 
essar}^  to  provide  special  charters  for  these  two  cities,  because  the 
municipal  code  is  adapted  rather  to  country  municipalities  than  to  cities 
of  a  metropolitan  size.  The  improvements  in  both  cities  which  are 
badly  needed  are  a  water  supply  and  a  sewer  system.  It  is  quite  prob- 
able that  the  power  to  issue  bonds  already  given  in  the  Philippine  act 
for  municipalities  would  be  sufiicient  if  the  restriction  contained  in  the 
act  rc(|uiring  the  consent  of  Congress  were  removed.  It  is  not  under- 
stood why  it  was  thought  necessary  to  insert  a  provision  of  law  requir- 
ing the  consent  of  Congress  to  the  issuing  of  bonds.  Certainly  with 
the  consent  of  Congress,  without  such  a  provision,  bonds  might  be 
issued,  and  it  is  thought  that  the  requirement  of  Congressional  consent 
was  an  error  in  the  drafting  of  the  Congressional  legislation.  In  any 
event,  it  is  exceedingly  awkward  and  unduly  limiting  the  power  of  the 
Commission,  to  require  that  where  within  the  narrow  limitations  con- 
tained in  the  law,  the  Commission  desires  to  issue  bonds  for  a  small 
amount  to  aid  municipalities,  it  should  be  required  to  apply  to  Con- 
gress for  its  consent.     It  is  respectfully  recommended  to  the  Commis- 


54-1  REPORTS    OF    THP]    CIVIL    GOVERNMENT 

sion  that  Conj^ress  be  urged  to  repeal  the  particular  provision  of  the 
riillippinc  act  requiring  the  specific  consent  of  Congress  to  the  issue 
of  l)oncls  for  the  benefit  of  any  municipality  in  the  Archipelago,  where 
such  issue  shall  not  exceed  the  percentage  of  taxable  value  now  imposed 
as  a  limit  by  the  law. 

JUSTICES   OF   THE    PEACE. 

The  secretary  of  finance  and  justice  will  comment  upon  the  general 
subject  of  the  administration  of  justice  in  these  islands.  It  is  enough 
for  me  to  say,  that  so  far  as  the  courts  of  first  instance  and  the  other 
superior  courts  are  concerned,  it  is  very  satisfactory,  and  is  doing  much 
to  tranquilize  the  islands,  and  teach  the  people  what  real  justice  is. 
Indeed,  it  is  not  too  much  to  say  that  crime  in  the  islands  is  punished 
with  more  speed  and  certainty  than  in  many  parts  of  the  United  States. 

With  respect  to  the  justices  of  the  peace,  however,  this  is  not  true, 
and  some  new  system  must  be  devised.  The  justice  of  the  peace  and 
an  iuixiliary  justice  are  now  appointed  for  every  town.  They  do  not 
receive  salaries,  and  are  dependent  for  compensation  upon  fees.  It  is 
diflacult  to  secure  good  men.  The  amount  of  business  of  anj  one  town 
is  ordinarily  so  little  that  the  ofiice  is  not  lucrative  at  all  unless  it  is 
made  the  center  of  petty  litigation  by  local  pettifoggers,  or,  as  the 
Spanish  term  is,  "  picapleitos,"  and  in  that  case  the  ofiice  is  an  unmixed 
evil.  For  this  reason  the  Commission  will  doubtless  feel  called  upon 
to  change  the  system  within  the  coming  year.  There  are  several  rem- 
edies recommended,  but  in  my  judgment  the  best  one  is  that  of  dividing 
the  province  into  comparatively  large  districts,  and  appointing  a  justice 
of  the  peace  for  each  district  with  a  living  salary.  This  will  dignify 
the  oflace,  will  secure  the  best  man  in  the  district,  and  will  give  a  much 
bette]-  character  to  the  administration  of  justice  in  what  ought  to  be 
the  people's  court. 

THE   CITY   OF   MANILA. 

The  report  of  the  city  of  Manila  is  a  very  interesting  one,  and 
shows  the  progress  which  has  been  made  in  the  material  welfare  of  the 
city.  The  two  great  improvements  which  are  needed  are  the  addition 
to  the  water  supply  and  the  construction  of  sewers.  Plans  and  speci- 
fications have  been  prepared  for  the  water  supply,  which,  if  the  plans 
are  carried  out,  will  be  brought  by  gravity  directly  from  a  dam  co- 
structed  between  two  marble  cliflts,  shutting  oflf  and  securing  enough 
water  to  remove  all  danger  of  a  scarcity  of  water  during  the  dry 
season.  The  plans  for  a  sewerage  system  are  being  rapidly  prepared, 
and  it  is  expected  that  they  will  be  ready  for  submission  by  the  first 
of  January.  The  Commission  has  engaged  the  services  of  an  expert 
engineer  of  high  repute,  Mr.  Desmond  Fitzgerald,  of  Brookline,  Mass., 
who  will  visit  the  islands  in  January  and  preside  over  a  board  of 
ent^ineers  which  will  consider  the  feasibility  of   the  plans  for   the 


OF   THE    PHILIPPINE    ISLANDS,   1900-1903. 


545 


increase  in  the  water  supply  and  the  construction  of  sewers.  The 
change  in  the  source  of  the  water  supply  will  remove  great  danger  of 
contagion  from  cholera  and  other  epidemic  diseases.  So  far  as  we  are 
able  to  obtain  estimates  from  the  engineers  making  the  plans,  it  would 
seem  that  the  cost  of  construction  of  the  sewers  and  the  new  water 
plant  will  fall  within  the  four  millions  allowed  by  law. 

It  ought  to  be  urged  upon  Congress,  in  my  judgment,  that  the  bonds 
issued  for  the  improvement  of  Manila  should  be  as  exempt  from  tax- 
ation as  the  bonds  to  be  issued  for  the  purchase  of  the  friars'  land. 
They  are  only  exempt  froni  Federal  taxation  in  the  United  States  and 
taxation  in  the  Philippine  Islands.  The  friars'  lands  bonds  are  made 
exempt  from  State,  county,  and  municipal  taxation  in  the  United 
States,  which  enables  us  to  sell  bonds  of  that  sort  at  a  very  much  lower 
rate  of  interest.  It  is  thought  that  it  will  injure  no  one  if  the  city 
bonds  of  Manila  are  given  as  wide  exemption. 

Manila  has  increased  in  houses  during  the  last  year,  as  will  be  seen 
from  the  following  table: 

Building  operations  in  the  city  of  Manila,  P.  I. ,  during  the  fiscal  year  ending  June  30, 1903. 


Month  and  year. 


Applica- 
tions 
made. 


Permits 
paid. 


Issued 
gratis. 


Receipts. 


United  States     Mexican 
currency.       currency. 


1902 

July 

August 

September 

October 

November 

December 

1903, 

January 

February 

March 

April 

May 

June 

Total 


257 
257 
320 
331 
360 
348 


426 
451 
554 
469 
801 
1,119 


207 
196 
314 
269 
304 
324 


362 
374 
487 
450 
523 
669 


116 
367 


S427. 30 
343. 90 
546.  .39 
413. 31 
708. 38 
600. 07 


203. 59 
160. 92 
251. 86 
325. 81 
201. 36 
279. 56 


S09. 00 
10.00 


1,644.89 
1,301.63 
1,286.08 
1,327.40 
1, 320. 80 
1,277.25 


5,693 


4,479 


595 


4, 480. 45 


8, 237. 05 


Month  and  year. 


Strong  materials. 


New  buildings. 


Num- 
ber. 


Value. 


Repairs. 


Num- 
ber. 


Value. 


Light  materials. 


New  buildings. 


Num- 
ber. 


Value. 


Repairs. 


Num- 
ber. 


Value. 


1902, 

July 

August 

September  . 

OcUjber 

November  . 
December.. 

1903 

January 

February  . . 

March 

April 

May 

June 

Total. 


49 
40 
39 
48 
116 
123 


100 
67 
72 
66 
80 
73 

873 


$154,870 
128,205 
256, 585 
135,236 
269, 210 
97, 016 


2 16, 025 
150,210 
122,535 
85, 360 
147,410 
145, 180 

1,946,871 


810, 955 
24,915 
23, 035 
12, 586 
10, 340 
6, 390 


23, 995 
5, 280 
5, 965 
12,020 
15,310 
20, 950 

171,711 


SO 
76 
102 
166 
120 
122 


172 
180 
273 
227 
306 
418 

2, 242 


$7, 060 
6, 355 
10,  220 
13,705 
10,  7S9 
1 1 , 014 


15, 140 
14,116 
25, 213 
18,  408 
22, 905 
34, 626 

189, 580 


32 
43 
71 
81 
103 
132 

702 


11,730 

750 

905 

925 

2, 190 

1,775 


1, 515 
1,855 
2,442 
2,790 
4, 285 
5,130 

26, 322 


540  REPORTS    OF    THE    CIVIL    GOVERNMENT 

During  the  year  about  150  buildings  were  condemned  and  ordered 
removed. 

Much  has  been  done  in  the  way  of  repairs  to  streets,  widening 
streets,  and  giving  the  city  a  modern  cleaning  every  day.  Of  course 
the  absence  of  the  sewerage  system  entails  very  heavy  expense  in  the 
introduction  of  the  pail  system,  and  there  is  an  immense  amount  of 
work  to  be  done  before  it  can  be  called  a  really  modern  city.  1  ven- 
ture to  .say,  however,  that  there  is  no  city  better  policed  than  Manila. 
It  is  singularly  free  from  crimes  of  violence,  and  one  feels  quite  secure 
at  any  time  of  day  or  night  in  any  part  of  the  city. 

The  falling  off  of  the  population  of  the  city  of  Manila  between  1900 
and  1903  from  260,000  to  221,000,  as  shown  by  two  censuses,  is 
not  inexplicable.  In  1900  there  was  much  disturbance  through  the 
country,  and  the  insurrection  had  not  ceased  in  many  parts.  The  effect 
of  the  insurrection  upon  those  who  were  wealthy  or  who  had  money 
enough  to  come  into  Manila  was  very  marked,  and  they  fled  to  Manila 
as  a  place  of  refuge.  As  soon,  however,  as  conditions  became  more 
tranquil  they  went  to  the  country,  so  that  the  reduction  in  the  popu- 
lation of  Manila  is  a  significant  evidence  of  the  tranquillity  of  the 
provinces.  The  introduction  and  maintenance  of  a  modern  fire  system 
and  a  metropolitan  and  native  police  force,  and  of  an  effective  street- 
cleaning  gang  are  all  shown  in  the  report  of  the  city,  hereto 
appended  and  marked  Exhibit  U.  There  is  considerable  doubt  as  to 
what  ought  to  be  done  about  taking  down  the  walls  of  the  walled  city 
of  Manila,  and  how  the  open  spaces  in  the  city  ought  to  be  improved. 
Major-General  Davis,  commanding  the  Division  of  the  Philippines, 
wrote  a  long  application  to  the  Secretary  of  War,  in  which  he  asked  for 
the  reservation  by  the  President  for  military  purposes  of  a  great  many 
pieces  of  land  in  the  city.  This  application  has  been  vigorously  resisted 
and  attacked  by  the  advisory  board  of  Manila,  by  the  municipal  board, 
and  by  mass  meetings  of  prominent  citizens.  The  Commission  has 
passed  a  resolution,  inviting  the  Secretary  of  War  to  make  a  contract 
with  a  landscape  architect  of  eminence  in  the  United  States,  empower- 
ing him  to  visit  Manila  and  make  a  sketch  of  the  improvements  needed 
with  a  view  to  art  and  utility,  and  until  this  report  is  made  it  is  hoped 
that  the  President  will  make  no  permanent  reservation  for  military  pur- 
poses. There  are  in  the  city  itself  and  in  the  environs  of  the  city  great 
opportunities  for  beautifying  the  landscape,  and  it  is  hoped  that  we 
may  be  able  in  time  to  make  the  city  of  Manila  the  handsomest  city  in 
the  Orient.  Improvements  are  expensive,  however,  and  must  be 
accordingly  slow.  Manila  is  interlaced  with  what  are  called  esteros, 
small  creeks  or  arms  of  the  sea  that  are  useful  for  navigation  and  that 
are  now  made  the  vehicle  for  much  of  the  deleterious  sewage  of  the 
town.  The  rise  and  fall  of  the  tide  assists  in  carrying  off  the  sewage, 
but  the  fall  of  the  tide  exposes  the  mud  and  filth  of  the  bottom  to  the 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  547 

sun  in  such  a  way  as  probably  to  produce  illness.  The  ultimate  hope 
of  the  introduction  of  the  sewerage  system  into  the  city  is  that  the 
esteros  not  useful  for  navigation  may  be  filled,  and  that  those  which 
are  useful  for  navigation  may  be,  as  the  term  is,  canalized— that  is, 
dredged  out  and  have  their  banks  walled  so  that  the  coming  and  going 
of  the  tides  shall  only  cleanse  the  water  without  exposing  the  filthy 
bottom.  A  comprehensive  sewer  system  would  take  much  away  from 
the  esteros  and  would  leave  them  to  discharge  only  the  useful  function 
of  cheap  interurban  transportation. 

I  am  glad  to  call  attention  to  the  fact  that  since  our  last  report  on 
March  3,  the  bids  for  a  franchise  for  an  electric  street  railway  were 
opened;  and  that  Mr.  Charles  Swift,  of  Detroit,  Mich.,  and  his  asso- 
ciates made  a  bid  which  the  Commission  and  the  municipal  board 
thought  it  wise  to  accept,  for  the  construction  of  a  first-class,  standard- 
grade  electric  street-car  line,  which  will  gridiron  the  city  and  furnish 
the  much-needed  cheap  transportation  from  the  absence  of  which 
Manila  has  always  suffered.  A  copy  of  the  charter  which  was  granted 
under  a  law  of  the  Commission  and  by  a  vote  of  the  municipal  board 
is  hereto  appended  and  marked  Exhibit  V.  The  term  of  the  charter 
is  fifty  years.  The  restrictions  in  it  are  those  which  usually  obtain  in 
charters  of  modern  street  railways  in  the  United  States.  The  com- 
pany has  the  right  to  run  two  classes  of  cars,  first  and  second  class, 
the  terms  of  the  charter  covering  rate  of  fares  being  as  follows: 

The  fare  charged  by  the  grantee  shall  not  exceed  six  cents  in  money  of  the  United 
States  on  a  first-class  car,  or  five  cents  in  money  of  the  United  States  on  a  second- 
class  car,  for  one  continuous  ride  from  one  point  to  another  on  the  railway  system  of 
the  grantee  within  the  city  limits  as  now  or  hereafter  established,  whether  it  be 
necessary  to  transfer  the  passenger  from  one  car  or  line  of  the  grantee  to  another 
during  said  ride  or  not:  Provided  ahoays,  That  where  a  change  of  cars  is  necessary 
there 'shall  be  established  by  the  grantee  a  method  of  transfers  not  imreasonably 
burdensome  in  its  restrictions  to  the  transferred  passengers;  and  in  case  of  a  failure 
to  comply  with  the  foregoing  requirement  as  to  transfers  it  may  be  enforced  upon 
application  of  the  municipal  board  by  mandamus  to  the  proper  court  of  first  instance 
or  the  supreme  court:  And  irrovided  further ,  That  on  lines  running  outside  of  the  city 
limits  an  additional  fare  or  fares  may  be  charged  at  the  rate  of  five  cents  in  money  of 
the  Cnited  States  on  first-class  cars,  or  three  cents  in  money  of  the  United  States  on 
second-class  cars,  for  each  two  miles  or  fraction  thereof  beyond  the  then  city  limits:  And 
provided  further,  That  the  grantee  shall  for  four  years  from  the  date  hereof  accept 
local  currency  in  lieu  of  money  of  the  United  States  in  payment  for  any  ride  or  fare  at 
the  ratio  of  two  cents  local  currency  for  one  cent  in  money  of  the  United  States,  until 
such  time  as  there  shall  be  established  for  these  islands  a  gold-standard  coinage  and 
money  thereunder  shall  be  made  legal  tender,  after  which  time  the  fares  to  be  charged 
shall  be  the  ecjuivalent  of  those  stated  above  in  money  of  the  United  States:  And  pro- 
vided further.  That  pending  the  adoption  of  the  gold  standard,  if  the  official  ratio  existing 
between  the  money  of  the  United  States  and  local  currency  shall  exceed  two  d.  liars 
and  forty  cents  of  local  currency  for  one  dollar  of  money  of  the  United  States,  then 
and  in  tliat  case  the  grantee  may  reciuire  from  the  passengers  the  payment  for  fares 
of  Hiidicient  local  currency  to  be  the  equivalent  of  the  fares  above  fixed  in  money  of 
the  United  States  at  the  ofiicial  ratio:  And  provided  further,  That  at  any  time  after 


548  REPORTS    OF    THE    CIVIL    OOVERNMENT 

tweuty-five  j-ears  from  the  date  hereof,  upon  due  notice  from  the  city  of  Manila  to  the 
grantee,  the  fares  charged  by  the  grantee  may  be  readjusted  on  a  reasonable  basis 
by  three  arbitrators,  one  to  be  chosen  by  the  city,  one  by  the  grantee,  and  the  third 
to  be  selected  by  the  two  so  chosen  if  they  can  agree,  but  if  not,  then  to  be  selected 
by  the  chief  executive  of  the  islands.  The  award  of  the  majority  of  such  arbitra- 
tors shall  be  final. 

There  is  also  a  provision  for  sale  of  20  first-class  tickets  for  a  dollar 
and  of  six  second-class  tickets  for  25  cents. 

The  contract  required  that  construction  should  be  begun  in  six 
months,  and  a  formal  breaking  of  ground  was  made  in  September. 
The  material  for  the  construction  has  been  distributed  all  over  the 
city,  and  the  real  work  of  construction  has  begun  this  month,  it  hav- 
ing been  delayed  because  of  the  rainy  season  and  a  fear  that  the  con- 
tinued fall  of  rain  would  only  subject  the  people  of  the  city  to  the 
inconvenience  of  obstructed  streets  without  real  progress.  The 
municipal  board  assures  the  Commission  that  the  street  cars-will  be 
running  about  Thanksgiving  Day  of  next  year.  Such  good  interilrban 
transportation  as  this  will  afford  will  reduce  the  cost  of  living  in 
Manila  certainly  25  per  cent  for  all  persons  enjoying  salaries  of  less 
than  $2,500,  for  it  is  almost  impossible  now  to  live  in  Manila  without 
maintaining  some  sort  of  a  conveyance.  It  is  hoped  that  the  company 
will  deem  it  wise  to  reduce  below  the  bid  the  fare  to  be  charged  second 
class,  for  it  is  quite  certain  that  a  reduction  will  vastl}^  increase  the 
patronage.  The  oriental  people  are  very  fond  of  riding  in  rapidly 
moving  cars. 

THE  PORT  WORKS. 

The  port  works  of  Manila  are  progressing  with  all  convenient 
speed,  as  shown  by  the  report  of  the  officer  in  charge,  hereto  attached 
and  marked  Exhibit  W.  The  dredging  of  the  30-foot  harbor  by  a 
monster  h^^draulic  dredge  and  the  filling  in  of  168  acres  in  front  of  the 
city  running  out  into  the  bay  goes  on  rapidly.  The  dredge  delivers 
25,000  cubic  yards  a  day  and  works  with  great  regularity.  The  break- 
water which  is  to  protect  the  harbor  from  the  southwest  monsoon  has 
been  filled  in  to  a  depth  of  30  feet,  so  that  it  is  visible  at  high  water. 
There  will  be  no  finer  harbor  in  the  Orient  than  Manila  will  have  when 
this  great  work  is  accomplished.  Two  millions  of  dollars  have  already 
been  appropriated  and  it  will  probably  cost  two  millions  more,  perhaps 
three  millions,  before  everything  connected  with  the  port  is  completed, 
including  wharves  and  suitable  warehouses.  However,  the  govern- 
ment will  have  160  acres  of  most  valuable  warehouse  property  which 
it  may  sell  and  which  will  go  far  toward  recouping  itself  for  the 
expense.  The  tonnage  of  the  shipping  coming  into  this  harbor  has 
increased  so  much  that  the  wisdom  of  the  engineers  and  of  the  Com- 
mission in  enlarging  the  harbor  be3'^ond  the  projected  lines  of  the 
Spanish  engineers  and  Government  has  already  been  vindicated.    Little 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  549 

or  no  progress  has  been  made  with  respect  to  the  Cebu  and  Iloilo  har- 
bor improvements,  because  no  one  has  been  willing  to  contract  for  the 
work.  The  Atlantic,  Gulf  and  Pacific  Company,  engaged  in  the 
Manila  improvement,  is  not  yet  able  to  take  up  another  work  and  there 
is  no  one  else,  apparently,  who  has  plant  enough  in  the  vicinity  to  make 
the  undertaking  of  such  contracts  for  dredging  profitable.  It  is  quite 
probable  that  the  government  will  have  to  undertake  the  contracts  by 
its  own  engineers  and  workmen. 

EXECUTIVE   BUREAU. 

The  work  which  has  been  done  by  the  executive  bureau,  which  has 
not  inaptly  been  called  a  clearing  house  for  all  the  bureaus  of  the 
government,  fairly  gauges  the  size  and  importance  of  the  government 
work  which  has  been  done  in  the  Philippines.  The  report  of  Mr. 
Fergusson,  the  executive  secretaiy,  who  is  the  efiicient  head  of  the 
executive  bureau,  which  is  annexed  hereto  and  marked  Exhibit  X,  shows 
clearly  the  earnest  work  done  by  government  clerks  and  completely 
refutes  the  suggestion  that  their  places  are  sinecures.  Their  fidelity 
and  earnestness  are  largely  due  to  the  consciousness  that  steady  appli- 
cation will  bring  promotion,  and  no  fear  or  favor  will  be  shown  in 
giving  it.  I  invite  especial  attention  to  the  report  of  the  recorder  of 
the  Commission,  which  is  appended  to  the  report  of  the  executive 
secretar}^,  and  which  probabl}^  gives  a  better  idea  of  the  labors  of  the 
Commission  than  any  more  general  statement  could.  It  is  not  too 
much  to  say  that  the  executive  bureau  is  organized  with  the  utmost 
efficiency  and  dispatches  an  immense  amount  of  work.  I  am  glad  to 
say  that  the  number  of  Filipinos  employed  during  the  present  3^ear  in 
the  bureau  has  increased  150  per  cent  over  previous  years,  and  that  the 
Filipinos  are  displaying  an  adaptability  and  capacity  for  work  which 
justifies  the  prophec}^  that  in  ten  years  the  expense  of  carrying  on  the 
government  will  be  largely  decreased  by  the  fact  that  Filipinos  can  be 
had  to  do  the  work  as  well  as  Americans  in  many  positions,  and  at 
very  considerabh^  less  salaries,  because  the  supply  of  such  clerks  will 
be  far  greater  than  of  American  clerks,  and  because  in  their  own  country 
they  are  able  to  live  on  much  less.  I  append  as  Exhibit  Y  the  execu- 
tive orders  and  proclamations  from  October  1,  1902,  to  September  30, 
1903. 

Respectfully  submitted. 

Wm.  H.  Tapt,  Civil  Governor. 

The  Philippine  Commission, 

Manila^  P.  I. 


FOURTH  ANNUAL  REPORT  OF  THE 
PHILIPPINE  COMMISSION. 


REPORT  OF  THE  SECRETARY  OF  THE  INTERIOR. 


Department  of  the  Interior, 
Manila,  P.  Z,  November  ^^,  190S. 
Gentlemen:  I  have  the  honor  to  present  my  second  annual  report, 
which,  unless  otherwise  expressly  stated,  covers  the  j^ear  ending 
August  31,  1903.  It  has  been  prepared  under  difficulties,  for  the  rea- 
son that,  having  been  absent  on  leave  since  June  27,  I  have  only  such 
knowledge  of  events  subsequent  to  that  date  as  1  can  derive  from  the 
reports  of  chiefs  of  bureaus,  which  were  received  so  late  that  it  has 
been  necessary  for  me  to  complete  my  own  report  during  the  early 
part  of  m}^  return  voyage. 

organization  of  the  department. 

The  organization  of  the  department  of  the  interior  has  been  but 
slightly  changed  during  the  past  year.  No  new  bureau  has  been 
created,  although  changes  have  been  made  in  the  personnel  of  many  of 
the  existing  bureaus,  as  increase  in  work  has  necessitated  increase  in 
their  working  force. 

By  act  No.  744,  passed  April  8,  1903,  the  bureau  of  patents,  copy- 
rights, and  trade-marks  was  placed  under  the  immediate  direction  of 
the  chief  of  the  bureau  of  archives,  and  thus  brought  under  the  execu- 
tive control  of  the  secretary  of  public  instruction. 

THE   BOARD   OF  HEALTH   FOR  THE    PHILIPPINE  ISLANDS   AND  THE 

CITY  OF  MANILA. 

The  board  of  health  has  done  admirable  work  during  the  past  year. 
There  has  been  no  change  in  its  personnel.  Maj.  E.  0.  Carter,  the 
commissioner  of  public  health,  has  shown  himself  to  be  a  very  efficient 
organizer  and  administrator.  He  has  brought  the  office  force  of  the 
board  to  a  degree  of  efficiency  not  heretofore  attained;  has  met  the 
opposition  of  an  association  of  property  holders  which  has  attempted 
to  prevent  the  enforcing  of  sanitary  regulations  with  unfailing  courtesy 
and  unflinching  firnui(\ss,  and  has  overcome  the  difficulties  arising  from 
the  attitude  of  the  municipal  board  of  Manila  toward  sanitary  measures 

551 


552  REPORTS    OF    THE    CIVIL    GOVERNMENT 

deemed  necessary  by  the  board  of  health  for  properly  safcj^uarding  the 
healtli  of  the  city  with  a  patience  and  perseverance  which  have  chal- 
Icnj^vd  admiration. 

All  that  has  been  done  has  been  accomplished  in  the  face  of  a  prac- 
tically unanimous  opposition  on  the  part  of  the  native  population  of 
the  city,  most  of  whom  appreciate  neither  the  theoretical  value  of 
sanitary  reforms  nor  the  importance  of  the  practical  results  which  have 
been  obtained.  The  steady  improvement  in  the  health  of  Manila, 
brou*i-ht  about  in  spite  of  these  adverse  conditions,  bears  eloquent  tes- 
timony to  the  energy,  industry,  and  ability  of  the  members  of  the 
board  of  health. 

RINDERPEST. 

Throuo'h  the  cooperation  of  the  bureau  of  government  laboratories 
and  the  board  of  health,  the  entire  situation  with  respect  to  rinderpest 
has  been  changed.  A  halt  has  been  called  upon  the  march  which  this 
disease  was  making  through  the  archipelago,  and  the  restocking  of  the 
islands  with  immunized  horned  cattle  has  been  made  possible,  so  that 
the  prostration  of  agriculture  due  to  lack  of  carabaos  with  which  to 
plow  the  soil  can  now  be  relieved. 

HEALTH   WORK   IN   MANILA. 

During  the  eight  months  of  the  present  j^ear  only  one- tenth  as  many 
cases  of  cholera  nave  occurred  in  Manila  as  in  the  nine  previous  months 
during  which  the  disease  has  existed.  On  the  worst  day  of  the  entire 
epidemic  of  1902-3  there  were  but  one-thirteenth  of  the  number  of 
cases  which  developed  during  a  similar  period  in  the  last  epidemic 
which  occurred  under  the  Spanish  administration. 

Smallpox  has  ceased  to  be  an  important  factor  in  the  death  rate  of 
Manila,  fifteen  times  as  man}-^  persons  having  been  vaccinated  during 
the  past  twelve  months  as  were  vaccinated  by  the  Spaniards  during 
the  five  years  previous  to  American  occupation.  The  city  has  been 
brought  into  a  sanitary  condition  never  approached  under  the  previ- 
ous administration,  and  its  death  rate  so  reduced  as  to  compare  favor- 
ably not  only  with  that  of  other  tropical  cities,  but  even  with  that  of 
many  cities  in  the  United  States.  It  is  hoped  that  eventuall}^  these 
results  will  begin  to  appeal  to  the  popular  mind.  Meanwhile,  the 
board  can  only  continue  to  do  its  duty  in  the  face  of  whatever  opposi- 
tion may  arise. 

The  magnitude  of  the  operations  of  the  board  is  shown  by  the  fact 
that  its  expenditures  for  the  year  have  aggregated  $1,082,255.41,  local 
currency,  and  P'lSljSOO.SO,  Philippine  currency. 

Sanitary  inspection  has  been  maintained  in  Manila  under  the  direc- 
tion of  the  chief  health  inspector  by  an  average  force  of  145  regular 
and  emergency  sanitary  inspectors.  During  the  year  there  were  made 
1,954,990  inspections  and  reinspections  of  houses;  241,800  houses 
were  cleaned  as  a  result  of  sanitary  inspection;  1,190  houses  were 
whitewashed  and  painted;  7,336  houses  were  disinfected;  82  houses 
were  condemned  and  removed;  11,256  cesspools  and  vaidts  were 
cleaned;  161,447  cleanings  of  yards  were  carried  out;  1,757  yards  were 
repaired,  repaved,  etc. ;  534  cholera  cases,  71  smallpox  cases,  and  185 
plague  cases  were  reported;  5,479  sanitary  orders  were  complied  with 
by  householders;  246  persons  were  convicted  for  violation  of  food 
prohibition  orders. 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  553 

DEATH   RATE   OF   MANILA. 

Considerable  difficulty  has  beeu  experienced  m  establishing-  the 
death  rate  for  the  city,  owing-  to  uncertainty  as  to  the  precise  number 
of  inhabitants.  The  census  originally  taken  by  the  board  of  health 
showed  a  population  of  2-14,732.  Subsequent  estimates  raised  these 
figures  to  250,000  and  later  to  302,154.  Unquestionably  there  has 
been  considerable  fluctuation  in  the  population,  for  when  the  provinces 
were  in  a  disturbed  state  peeple  flocked  into  the  city  for  safety,  return- 
ing again  to  their  provincial  homes  as  conditions  improved.  The 
recent  official  census  shows  a  population  of  219,911. 

The  director  of  the  census  has  stated  that  the  figures  211,732  may 
be  considered  approximately  correct  for  the  period  prior  to  the  official 
census,  and  all  rates  figured  before  June  30,  1903,  on  higher  estimates 
have  been  recomputed  on  this  basis.  Since  this  time  the  official  figures 
(219,911)  have  been  used  in  all  computations.  These  latter  figures  show 
that  the  population  is  made  up  of  189,782  Filipinos,  22,125  Chinese, 
4,389  Americans,  and  3,615  foreigners.  The  total  deaths  for  the  year 
were  8,392,  giving  an  annual  death  rate  of  37  to  the  thousand.  Eight 
hundred  and  ninety-four  of  these  deaths  were  due  to  cholera  and  166 
to  bubonic  plague. 

The  rate  per  thousand,  b}'  races,  has  been:  Filipinos,  43.42;  Chinese, 
28.26;  foreigners,  18.72;  Americans,  14.80.  Of  the  total  deaths 
occurring  in  the  city,  including  transients,  5,105  were  reported  as 
occurring  in  males  and  3,906  in  females. 

In  respect  to  age  the  deaths  were  as  follows: 

Under  1  year 3,872 

One  to  10  years 1, 012 

10  to  20  years - -  -  400 

20  to  30  years 1, 080 

30  to  40  years 1, 020 

40  to  50  years - 646 

50  to  60  years 501 

60  to  70  years 405 

70  to  80  years 209 

80  to  90  years 113 

90  to  100  years 71 

More  than  100  years 28 

In  37  instances  age  was  not  reported. 

INFANT   MORTALITY. 

It  will  be  noted  that  a  very  high  death  rate  among  infants  is  the 
chief  factor  in  the  general  result,  41.23  per  cent  of  the  total  number  of 
deaths  having  occurred  in  infants  under  one  year  of  age.  For  the 
month  of  June  the  deaths  reported  from  "  convulsions  of  children" 
alone  exceeded  the  combined  mortality  from  Asiatic  cholera,  bubonic 
plague,  smallpox,  malarial  fevers,  typhoid  fever,  and  l)eri-beri.  This 
shocking  infant  mortality  is  largely  the  result  of  ignorance  concerning 
their  proper  care  and  feeding  and  diflieulty  in  o))taining  suitable  food 
for  those  who  can  not  be  nursed  by  their  mothers.  A  f  retpient  source 
of  death  among  them  is  tetanus,  resulting  from  infection  of  the  umbili- 
cal chord  at  ])irth  by  reasovi  of  improper  dressings. 

The  problem  of  reducing  infant  mortality  in  Manila  and  the  prov- 
inces is  one  which  should  ))e  seriously  and  promptly  attacked.  Some- 
thing can  be  done  l)y  educating  the  mothers;  and  more,  in  the  immc- 


551  REPORTS    OF    THK    CIVIL    OOVKRNMENT 

dia(o  future,  l>y  cinploj^inj^  properl}'^  trained  midwives  and  nurses.  It 
is  in  my  opinion  u  niatter  ot  the  greatest  importance  that  a  training 
school  for  Filipino  nurses  should  be  established  as  soon  as  possible. 

DEATH    KATE    IN    DIFFERENT   DISTRICTS   OF   THE    CITY. 

Ermita,  in  Avhich  reside  a  large  population  of  whites  and  Filipinos 
of  the  better  class,  has  been  the  healthiest  district  of  the  city.  Its 
death  rate  was  19.22,  which  is  about  that  of  the  most  healthful  modern 
cities.  Districts  with  a  large  Chinese  population  show  a  nuich  lower 
death  rate  than  those  cbie%  populated  b}^  the  poorer  class  of  Filipinos. 
Paco,  with  a  death  rate  of  88.32,  was  the  most  unhealth}'  district,  and 
the  cause  of  the  high  mortalitj^  there  should  be  made  the  subject  of 
early  investigation. 

LACK   OF   MEDICAL   ATTENDANCE. 

Forty-eight  and  three-tenths  per  cent  of  the  total  deaths  and  still- 
births in  Manila  are  reported  to  have  occurred  in  the  absence  of  any 
treatment  b}"  ciualilied  ph3^sicians.  Man}''  of  the  more  ignorant  natives 
are  fatalists,  regarding  disease  as  a  thing  which  can  be  checked  only 
by  the  will  of  God.  For  this  reason,  and  because  many  do  not  under- 
stand that  free  treatment  can  be  obtained  from  the  Filipino  and  Chinese 
municipal  physicians,  a  large  part  of  the  population  goes  without  med- 
ical assistance  of  any  sort,  and  this  materially  tends  to  swell  the  death 
rate. 

Very  substantial  reduction  in  the  death  rate  will  result  from  better 
care  of  infants;  a  new  water  supply,  which  may  be  looked  for  in  a 
comparatively  short  time;  a  general  sewerage  system;  the  improve- 
ment of  the  esteros,  and  the  filling  in  of  low  lands. 

BIRTH    RATE. 

The  total  number  of  births  reported  in  Manila  was  3,38*^,  giving  a 
rate  of  15.39  per  thousand.  The  returns  are  unquestionably  very 
incomplete,  and  a  large  number  of  births  have  doubtless  occurred 
which  have  not  been  reported.  Improvement  in  reports  was  noticeable 
toward  the  end  of  the  year,  however,  and  it  is  hoped  that  reliable  birth 
statistics  may  soon  l)e  obtained.  The  problem  of  securing  them  is  com- 
plicated b}'  the  fact  that  among  the  Filipinos  midwives  or  j^hysicians 
are  not  summoned  in  the  majority  of  cases. 

NEED   OF   PUBLIC   BATH   HOUSES   AND   LAUNDRIES. 

The  commissioner  of  public  health  in  his  annual  report  strongly 
recommends  the  establishment  of  public  bath  houses  and  laundries. 
The  evil  results  of  bathing  and  washing  clothing  in  the  Pasig  River 
and  the  esteros  in  time  of  epidemic  disease  have  been  conclusively 
demonstrated  during  the  recent  cholera  epidemic.  Even  when  the 
water  is  not  infected  with  the  germs  of  dangerous  contagious  diseases, 
it  contains  those  of  dhobie  itch  and  other  anno3dng  ailments.  No  law 
prohibiting  bathing  or  the  washing  of  clothing  in  the  river  and  esteros 
can  be  enforced  until  other  facilities  have  been  supplied  to  take  the 
place  of  those  of  which  the  people  would  be  deprived  by  such  enforce- 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  555 

merit.  Pu})lic  baths  and  wash  houses  should  be  established  b}^  the 
municipal  authorities  at  convenient  points  with  reference  to  centers 
of  population.  The  structures  need  not  be  exj^ensive,  and  the  result- 
ing improA'cment  in  public  health  would  unquestionably  be 
considerable. 

A   NEW   WATER   SUPPLY   AN   IMPERATIVE   NECESSITY. 

The  commissioner  of  public  health  also  strongly  urges  the  necessity 
of  a  new  water  supply  for  the  cit}-.  As  a  matter  of  fact,  investiga- 
tions preparatory  to  the  providing  of  such  a  supply  are  now  in  pro- 
gress. The  work  should  be  pushed  forward  with  all  possible  haste. 
The  frightful  danger  to  Avhich  the  city  has  been  exposed  throughout 
the  recent  cholera  epidemic  by  drawing  its  water  from  a  stream  with 
three  populous  towns  along  its  banks  above  the  intake  has  been  a 
constant  and  heavy  strain  upon  those  responsible  for  safeguarding  the 
public  health.  We  have  been  extraordinarily  fortunate  in  escaping  a 
general  infection  of  the  water  supply  with  the  germs  of  cholera, 
which  might  readily  have  resulted  in  iO(>,00()  deaths  in  the  city,  and 
could  hardh"  hope  to  be  so  fortunate  again. 

Apart  from  the  danger  in  time  of  water-borne  epidemic  diseases,  the 
present  water  supply,  coming  as  it  does  from  a  river  with  20,000  people 
living  in  its  valley  above  the  intake,  is  foul  and  unfit  for  drinking  pur- 
poses unless  subjected  to  careful  preliminar}'  tiltering  or  boiling.  Fur- 
thermore, the  pressure  is  insufficient.  In  man}'  parts  of  the  city  at  certain 
times  of  the  da}-  water  can  not  be  drawn  on  the  second  floors  of  houses. 
The  engines  at  the  pumping  stations  are  antiquated  and,  when  all  of 
them  are  worked  at  their  full  capacity,  supph^  only  -iO  gallons  per  day 
per  capita,  a  quantity  insufficient  to  meet  existing  municipal  needs  for 
domestic  and  manufacturing  purposes.  The  present  reservoir  holds 
but  one  day's  supph'  for  the  cit}^,  so  that  a  temporary  breakdown  of 
one  or  more  of  the  old  engines  now  in  use  would  result  in  a  water 
famine. 

The  present  distribution  of  water  is  unsatisfactoiy,  especially  in  the 
districts  inhabited  by  Filipinos  of  the  poorer  class,  man}'  of  whom  would 
have  to  carry  water  for  such  long  distances  if  they  obtained  it  from  the 
city  mains  that  they  arc  practically  forced  to  dig  wells,  which  invariably 
become  contaminated,  or  to  draw  water  for  domestic  purposes  from 
the  filthy  csteros.  In  time  of  fire  there  is  often  not  sufficient  water  to 
bring  flames  under  control  and  costly  conflagrations  result.  It  can 
unhesitatingly  be  stated  that  the  greatest  immediate  sanitary  need  of 
the  city  of  Manila  is  an  adequate  supply  of  pure  water. 

The  question  of  water  supply  became  especially  critical  during  the 
past  year  when  the  town  of  Mariquina  was  destroyed  by  fire.  Some 
four  thousand  homeless  people  crowded  down  among  the  trees  on  the 
river  l)ank  and  erected  temporary  sliclters  for  themselves.  They  had 
no  sanitary  facilities,  and  contamination  of  the  river  with  nightsoil  was 
inevitable.  Cholera  prevailed  in  neighboring  towns,  and  danger  of  a 
general  epidemic  in  Manila,  due  to  an  infected  water  supply,  was 
obviously  very  great.  The  boai'd  of  health  displayed  its  usual  energy 
and  efficiency  in  dealing  with  this  situation,  taking  control  of  the  Mar- 
i(|uina  watershed  and  securing  the  assignment  of  a  large  number  of 
United  States  troops  as  a  water  guard  and  the  detail  of  a  company  of 
constal)ulary  as  sanitary  police. 


55()  REPORTS    OF    THE    CIVIL    GOVERNMENT 

Aincrioau  and  Filipino  f^anitary  inspectors  with  a  detachment  of  dis- 
infoctors  were  sent  from  Manila;  the  refugees  were  moved  away  from 
the  river  and  provided  with  tents;  the  pail-conservancy  system  was 
installed  to  prevent  water  pollution  from  niyhtsoil,  and  the  whole 
sanitary  service  was  placed  under  the  control  of  a  medical  officer.  By 
these  means  the  danger  was  averted. 

FOUL  WELLS  IN  MANILA. 

The  wells  of  Manila  are  an  abomination.  Water  is  usually  encoun- 
tered at  a  depth  of  3  to  -i  feet  below  the  surface,  and  its  character  can 
readil}^  be  imagined.  Many  of  the  wells  are  mere  excavations  in  the 
soil,  without  walls  or  facilities  for  lifting  the  water,  and  are  constantly 
contaminated  by  surface  washings.  Others  are  stoned  up  and  pro- 
tected to  some  extent  against  surface  drainage,  but  the  quality  of 
water  obtained  from  all  shallow  wells  is  bad,  owing  to  the  high  degree 
of  pollution  of  the  soil.  All  wells  were  closed  by  my  order  at  the 
time  of  the  cholera  epidemic  in  1902.  Authority  has  since  been 
granted  for  the  reopening  of  a  few  of  them  to  supply  water  for  domestic 
purposes  other  than  drinking,  cooking,  and  washing  dishes,  but  when 
an  adequate  city  water  supply  has  Ijeen  provided  all  shallow  wells 
should  be  permanently  closed. 

SEWEK  SYSTEM. 

Manila  is  an  unsewered  city.  The  few  old  drains  of  Spanish  con- 
struction, traversing  some  of  the  more  densel}"  populated  districts,  are 
rectangular  in  cross  section  and  are  made  of  loose  slabs  of  stone 
between  which  liquid  contents  readil}^  escape.  They  are  laid  without 
regard  for  proper  fall  and  the  avoidance  of  undue  friction.  Earth 
works  into  them  through  cracks  between  the  stones,  so  that  they  soon 
become  choked.  At  best  they  discharge  only  on  a  falling  tide.  Most 
of  them  empty  into  esteros,  and,  far  from  being  of  use,  they  are  a 
positive  menace  to  the  public  health.  It  will  be  a  difficult  and  expen- 
sive matter  to  establish  an  adequate  sewer  system  for  the  city,  but 
such  a  system  is,  next  to  a  pure- water  supply,  the  city's  greatest  sani- 
tary need. 

The  existing  esteros  or  tide  creeks  should  be  retained  and  improved, 
in  order  to  carr}^  off  the  enormous  quantity  of  rain  water  which  falls 
during  typhoons  and  to  facilitate  water  transportation.  The  sewer 
system  proper  should  be  for  the  removal  of  excreta  and  liquid  waste 
from  houses  and  manufactories.  A  coml)ined  S3^stem  for  the  removal 
of  these  substances  and  of  storm  water  would  seem  to  be  quite  imprac- 
ticable. 

Much  has  already  been  done  to  improve  the  sanitary  condition  of 
the  esteros.  Under  Spanish  rule  practically  all  excreta,  garbage,  and 
manufacturing  waste  were  deposited  in  them,  and  they  were  merely 
very  foul  open-air  sewers.  The  removal  of  garbage  by  the  municipal 
authorities,  the  abolition  of  man}^  of  the  privies  over  esteros,  the 
removal  of  excreta  in  conservancy  pails,  and  the  insertion  of  septic 
tanks  in  many  private  drains,  so  that  their  discharge  is  considerably 
purified  l)efore  entering  the  esteros,  have  led  to  much  improvement; 
but  conditions  are  still  highl}^  unsatisfactory,  and  nnist  so  remain  until 
a  general  sewer  system  has  been  constructed  and  the  esteros  have  been 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  557 

dredged  and  walled  and  adequate  means  of  flushing  them  have  been 
provided.  At  present  the  outflow  and  inflow,  due  to  the  fall  and  rise 
of  the  tide,  result  onl}"  in  the  oscillation  of  foul  water  from  one  por- 
tion of  the  estero  system  to  another,  without  sufiicient  purification  by 
discharge  to  offset  the  pollution  constantly  going  on.  It  is  only  dur- 
ing the  rainy  season  that  the  esteros  are  properly  flushed,  and  their 
condition  towards  the  close  of  the  dry  season  becomes  shockingl}^  bad. 
They  are,  however,  absolutely  necessary  to  carry  off"  storm  water 
during  the  rainy  season,  and  are  of  great  economic  value,  affording 
ready  access  b}"  water  to  all  of  the  more  important  parts  of  the  cit}", 
therebv  greatly  cheapening  and  facilitating  transportation.  If  their 
contamination  b}"  sewage  and  organic  waste  can  be  prevented  they 
will  be  of  great  value  to  the  city. 

PLAN   FOR   liVIPROVING   THE    ESTEROS. 

Dr.  E.  L.  Munson,  assistant  to  the  commissioner  of  public  health, 
has  suggested  a  plan  for  the  flushing  of  the  esteros  during  the  dry 
season  which  is  well  worthy  of  practical  trial.  His  idea  is  to  control 
the  tidal  action  in  the  esteros  b}"  outflow  gates  near  their  mouths  and 
inflow  gates  near  their  heads  in  such  a  wa}"  as  to  cause  a  constant  move- 
ment of  their  water  toward  the  lower  portion  of  the  Pasig  River  so 
that  they  will  discharge  on  the  ebb  of  the  tide,  comparatively  pure 
water  for  filling  them  to  be  drawn  from  higher  up  the  river  when  the 
tide  rises.  The  closing  of  the  inflow  gates  at  the  proper  time  Avould 
prevent  any  escape  of  the  cleaner  water  except  by  traversing  the  esteros, 
and  the  opportune  closing  of  the  outflow  gates  would  prevent  any 
reentrance  of  foul  water.  It  would  l)e  necessary  to  dig  three  short 
inflow  flushing  canals  in  order  to  perfect  the  operation  of  the  S3"stem 
throughout  the  entire  city.  It  is  estimated  that  the  cost  of  the  neces- 
sary flushing  canals  and  tidal  gates  would  be  but  $15,000.  If  a  steady 
flow  could  be  had  during  a  part  of  the  da}^  only  from  the  heads  of  the 
esteros  into  the  river,  it  would  be  an  enormous  improvement.  At 
present  the  accumulated  filth  of  the  esteros  is  forced  back  into  the  out- 
skirts of  the  city  b}^  the  rising  tide  and  drawn  down  into  the  commer- 
cial and  residence  districts  by  the  falling  tide,  while  comparatively 
little  of  it  finds  its  way  into  the  river  except  during  violent  rain  storms. 

Ultimately  the  esteros  should  be  provided  with  solidly  built  valve 
gates  to  insure  the  proper  purifying  movements  of  the  water.  They 
should  also  be  straightened  where  practicable,  dredged  to  a  sufficient 
width  and  to  a  uniform  depth  of  4  feet  at  low  tide,  so  that  mud  banks 
may  never  be  exposed,  and  walled  up  with  stone. 

SUNKEN   LANDS   IN   MANILA. 

There  arc  considerable  areas  of  sunken  and  marshy  lands  within  the 
city  which  should  be  filled  as  rapidly  as  possible.  At  present  they  are 
in  many  instances  alternately  flooded  by  filthy  estero  water  and 
uncovered.  The}-  afford  ideal  breeding  places  for  mosquitoes.  They 
are  evil  smelling  and  unsanitary,  and  in  man}-  instances  constitute 
nuisances  which  might  well  be  abated  at  the  expense  of  their  owners, 
who  would  be  well  recompensed  for  the  expense  involved  by  the  result- 
ing increased  value  of  their  lands.  The  commissioner  of  public  health 
believes  that  ashes  froiu  the  shipping  at  the  wharves  and  from  manu- 

23181—04 36 


558  REPORTS    OF    THE    CIVIL    GOVERNMENT 

factories,  cromatories,  breweries,  etc.,  should  ])c  used  for  improving 
those  hinds,  and  that  no  material  which  could  advantaoeously  be  used 
for  lillin*^-  sliouUl  be  removed  from  the  city  or  dumped  into  the  bay. 
1  heartily  eoncur  in  this  opinion. 

DISPOSAL   OF   GARBAGE. 

The  collection  and  disposal  of  garba<>-e  and  refuse  is  at  present  per- 
formed b}'  the  department  of  streets  and  parks,  under  th(i  direction  of 
the  city  engineer,  but  the  sanitar}^  inspectors  of  the  l)oard  of  health 
take  cog-nizancc  of  any  failure  to  properly  conduct  this  work.  Garbage 
is  taken  to  the  crematory,  where  it  is  sorted  and  destroyed.  Property 
owners  are  required  to  deposit  their  garbage  in  water-tight  metal  con- 
tainers. These,  together  with  receptacles  for  other  refuse,  must  be  set 
out  on  the  street  in  front  of  the  premises  for  collection  not  earlier  than 
9.30  p.  m.  or  later  than  5  a.  m.  This  system  is  effective  and  has 
great!}'  facilitated  the  work  of  safeguarding  the  health  of  Manila. 

DISPOSITION   OF   NIGHT   SOIL. 

The  collection  and  disposal  of  human  excreta  is  by  law  placed  under 
the  direction  and  control  of  the  board  of  health.  The  work  is  partl}^ 
performed  b}"  employees  of  the  pail  conservancy  system  and  partly 
by  private  contractors.  Vaults  and  latrines  are  emptied  by  employees 
of  the  pail  conservancy  S3'stem  only  at  night,  and  odorless  excavators 
are  used  for  this  purpose.  The  private  scavengers  are  not  properly 
equipped  for  doing  such  work  and  still  employ  unsanitary  methods. 
Night  soil  is  disposed  of  by  dumping  it  into  the  bay  outside  of  speci- 
fied limits.  There  is  reason  to  believe  that  employees  of  private  con- 
tractors sometimes  dump  the  cargoes  of  their  crafts  into  the  esterosor 
the  Pasig  River  under  cover  of  night.  This  work  should  be  entirely 
taken  over  by  the  board  of  health  when  sufficient  equipment  is  avail- 
able for  carrying  it  on. 

The  operation  of  the  pail  conservancy  system  has,  on  the  whole,  been 
satisfactory.  Experience  shows  that  in  providing  for  the  disposal  of 
the  excreta  of  the  poorer  class  it  is  usually  preferable  to  group  the 
pails  for  a  number  of  houses  in  a  latrine  open  to  the  general  public 
rather  than  to  make  individual  installations.  In  the  public  latrine  pails 
can  be  properly  looked  after  by  an  attendant,  and  much  of  the  time 
which  would  be  required  for  their  collection  and  distribution  over  wide 
areas  is  saved.  The  cost  of  operating  such  latrines  must,  obviously, 
be  paid  from  the  public  treasury,  but  most  of  the  people  who  use  them 
would  be  too  poor  to  pay  for  private  installations. 

The  scavenger  barge  IVuto,  especially  constructed  to  serve  as  a 
dumping  boat  for  the  pail  conservancy  system,  has  been  received. 
She  is  a  vessel  of  285  tons  burden,  and  can  go  out  into  the  bay  in  all 
reasonable  weather  and  dispose  of  her  load  at  a  point  sufficiently  dis- 
tant from  the  shore  to  render  impossible  the  casting  up  of  foul  matter 
on  the  beach.  The  Pluto  will  receive  all  night  soil  which  is  removed 
by  private  scavengers. 

CONGESTION    IN   POPULOUS   DISTRICTS. 

A  material  improvement  in  the  sanitary  condition  of  the  city  may 
be  expected  when  the  installation  of  the  electric  street-car  system  now 


OF    THE    PHlLirPINK    ISLANDS,    1900-1903.  559 

under  construction  is  completed.  Tliere  is  great  congestion  of  popu- 
lation in  many  parts  of  the  city,  especially  in  those  districts  inhabited 
by  the  working  class.  This  is  largely  due  to  the  necessity  of  living- 
near  one's  place  of  employment,  felt  at  present  Ijy  evxry  person  who  is 
not  possessed  of  sufficient  means  to  afford  a  horse  and  vehicle  or  a 
considerable  daily  expenditure  for  carriage  hire.  It  would  involve 
great  hardship  were  we  to  thin  out  the  overpopulated  districts  at  pres- 
ent and  compel  a  considerable  number  of  their  inhabitants  to  iind 
homes  at  a  distance  from  thdr  places  of  employment.  When  the  street- 
car system  is  in  operation  the  work  of  gradually  removing  the  more 
unsanitary  habitations  from  overcrowded  districts  should  be  under- 
taken, and  reasonable  requirements  as  to  amount  of  space  left  between 
buildings  should  be  insisted  upon. 

THE    FLOATING   POPULATION   OF   MANILA, 

Much  trouble  has  been  caused  the  board  of  health  by  the  floating 
population  of  Manila,  consisting  of  about  15,000  souls  who  reside  upon 
cascos,  lorchas,  launches,  and  other  small  vessels  plying  on  the  river, 
the  esteros,  and  the  bay.  They  are  an  unruly  set  and  are  difficult  to 
keep  under  supervision  on  account  of  the  constant  movements  of  their 
floating  habitations.  It  has  not  proved  practicable  to  prevent  their 
polluting  the  river  and  the  esteros  with  refuse  and  excreta,  nor  can 
they  be  restrained  from  using  infected  waters  for  drinking,  cooking, 
and  bathing.  Cholera  has  occurred  among  this  class  to  a  larger  extent 
than  among  any  other  class  of  the  population.  Only  too  often  they 
hurry  their  sick  ashore  and  abandon  them  or  weight  the  bodies  of  the 
dead  and  drop  them  into  the  water  at  night  in  order  to  escape  having 
their  crafts  disinfected.  The  sanitary  problems  presented  by  this 
floating  population  are  very  difficult  of  solution.  They  can  not  well 
be  compelled  to  take  up  their  residence  ashore,  nor  can  their  vessels 
be  obliged  to  anchor  in  the  bay.  They  might  bo  compelled,  during 
the  daytime  at  least,  to  make  use  of  public  latrines  situated  at  conven- 
ient points  on  the  shore.  An  adequate  supply  of  good  drinking  water 
should  l)e  made  available  for  them  at  convenient  points  so  that  they 
may  have  no  excuse  for  drinking  river  water.  During  the  year  a  launch 
has  been  kept  in  constant  use  by  the  board  of  health  inspecting  the 
carrying  out  of  sanitary  work  among  these  denizens  of  the  bay,  river, 
and  esteros. 

SANITARY   MARKETS   AND   UNSANITARY    FOOD   SHOPS. 

The  admirably  constructed  and  sanitary  markets  erected  in  Manila 
under  American  rule  have  l)oen  an  im[)ortant  factor  in  limiting  the 
spread  of  cholera  and  other  diseases  in  the  city.  It  is  easy  to  inspect 
them,  and  they  are  ke[)t  for  the  most  part  in  excellent  condition.  It 
is  a  far  more  difficult  matter  to  keep  in  a  proper  state  the  1,100  shops 
or  ticndas  where  a  large  number  of  poor  people  habitually  take  their 
meals.  The  sanitary  condition  of  these  shops  has  Ixxui  gi-eatly  iinproved 
through  inspection  and  refusal  of  renewal  of  licenses  to  ostal)lishments 
which  offend  most  seriously,  but  their  condition  is  still  unsatisfactory. 
The  work  of  inspecting  foods  and  drinks,  and  establishments  for  their 
preparation  and  sale,  has  been  especially  heavy  during  the  continuance 
of  the  cholera  epidemic.     The  lower-class  Filipino  seems  unwilling  to 


560  •     REPORTS    OB'    THE    CIVIL    GOVERNMENT 

piirchaso  an  article  of  food  without  first  hundliiio-  it,  and  the  infection 
of  cholera  has  uiuiuestionably  been  f  requentl}^  transmitted  in  this  way. 
Handling  of  food  was  therefore  prohibited,  and  vendors  were  required 
to  supply  forks  for  the  use  of  possible  purchasers.  Flies  having  been 
found  to  be  quite  generally  infected  with  cholera  bacilli,  the  protection 
of  food  by  proper  fiy  screens  was  insisted  upon. 

During  the  epidemic  the  use  of  some  40  articles  of  food  was,  at  dif- 
ferent times,  strictly  prohibited.  Fruits  not  of  an  acid  character  and 
usually  eaten  raw  and  unpeeled,  vegetables  used  for  salads,  mollusks, 
and  a  considerable  number  of  the  mixed  foods  used  by  Chinese  and 
Filipinos  which  were  especially  likely  to  carry  infection,  have  made 
up  the  prohibited  list,  which  could  not  be  increased  to  the  limit  theo- 
retically desirable  without  inflicting  excessive  hardship  upon  the  poorer 
classes. 

NEED   OF   A    GENERAL   HOSPITAL. 

There  is  a  great  need  of  a  general  hospital  in  Manila.  The  army 
has  made  adequate  provision  for  its  sick,  and  the  civil  government  has 
also  provided  adequate  hospital  facilities  for  civil  officers,  employees, 
and  members  of  their  families,  but  the  closing  of  the  Woman's  Hospi- 
tal and  the  Maternity  Hospital  during  the  past  year  has  left  no  place 
where  modern  hospital  facilities  can  be  had  by  any  considerable  pro- 
portion of  the  sick  of  Manila  who  are  not  connected  with  the  army  or 
the  civil  government. 

While  the  beds  not  occupied  at  a  given  time  in  the  civil  hospital 
have  been  made  accessible  to  the  general  public,  they  are  grossly 
insutficient  in  number  to  meet  the  existing  need.  A  site  for  a  general 
hospital  has  been  selected  on  the  exposition  grounds  conveniently  near 
the  site  of  the  new  building  for  the  bureau  of  government  laboratories, 
from  which  it  can  be  supplied  with  light  and  power.  The  commission 
has  expressed  its  purpose  to  construct  and  maintain  such  an  institu- 
tion, and  it  is  earnestly  hoped  that  there  may  be  no  delay  in  under- 
taking the  work  of  erecting  the  necessary  buildings.  The  hospital 
should  be  constructed  on  the  pavilion  plan,  and  should  be  provided 
with  surgical  amphitheater,  autopsj^  amphitheater,  and  clinical  rooms, 
to  be  used  in  connection  with  a  medical  school  when  established. 

CONTAGIOUS-DISEASE   HOSPITALS. 

During  the  year  the  several  hospitals  for  contagious  diseases  on  the 
San  Lazaro  estate  have  been  placed  under  the  control  of  one  man. 
The  commissioner  of  public  health  reports  that  increased  efiiciency 
has  resulted,  and  that  the  administration  of  the  several  hospitals  have 
been  in  man}"  ways  improved. 

There  has  been  great  improvement  during  the  year  in  facilities  for 
the  treatment  of  contagious  diseases.  Through  the  public  spirit  and 
generosity  of  Chinese  merchants,  funds  were  contributed  for  the  con- 
struction of  a  well-built  and  modern  pavilion  hospital  for  plague  cases 
and  of  a  small  building  for  a  reception  ward.  It  is  planned  to  erect 
additional  separate  buildings  for  the  treatment  of  Chinese  cholera  and 
smallpox  patients.  The  nipa  buildings,  formerly  used  for  the  deten- 
tion of  contagious-disease  contacts,  were  destroyed  in  the  great  Trozo 
fire.     On  the  site  which  they  occupied  modern  hospital  buildings  are 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  561 

being  erected  on  the  detached  pavilion  plan,  capable  of  properly  caring 
for  all  classes  of  contagious  disease.  These  buildings  should  be  ready 
for  occupancy  early  in  October. 

NEED   OF   INSANE   ASYLUM. 

A  hospital  for  the  insane  is  greatly  needed.  The  provinces  are 
entirel}"  without  facilities  for  caring  for  this  class  of  unfortunates.  At 
Manila  the  Hospicio  de  San  Jose,  at  present  conducted  by  the  Cath- 
olic Church,  accommodates  about  300  persons,  but  this  institution  is 
crowded  to  the  limit  and  is  wholly  inadequate  to  meet  even  the  local 
need.  As  a  result  the  insane  among  the  Filipinos  throughout  the 
islands  are  necessarily  cared  for  in  the  houses  of  their  friends  or  in  the 
provincial  jails.  The  board  of  health  has  often  been  compelled  to  take 
charge  of  insane  persons  who  were  transients,  or  friendless,  or  whose 
condition  was  such  as  to  make  them  dangerous,  and  has  been  obliged 
to  bring  them  into  a  police  court,  charge  them  wdth  disorderly  con- 
duct, and  procure  their  incarceration  in  Bilibid  prison  in  order  to  secure 
decent  care  for  them.  This  method  of  procedure,  though  necessary, 
is  deplored  by  those  who  employ  it,  and  the  providing  of  an  adequate 
hospital  for  the  care  of  the  insane  must  be  regarded  as  an  urgent 
necessity. 

LEPER   COLONY. 

Work  on  the  leper  colony  at  Culion  has  progressed  unsatisfactoril^y, 
owing  to  labor  difficulties,  and  it  has  been  deemed  preferable  to  with- 
draw government  employees  and  material  from  the  island  and  let  the 
work  of  construction  to  private  contractors.  During  the  year  the 
Philippines  have  suffered  from  what  is  said  to  have  been  the  worst 
drought  in  half  a  century.  The  governor  of  Paragua  reported  to  the 
commission  that  the  water  supply  at  Culion  was  insufficient  for  the 
proposed  colony.  Engineers  were  hurried  to  the  island  to  thoroughly 
investigate  this"^ matter.  Wells  were  sunk  and  one  of  them  developed 
a  fine  flow  of  water  at  moderate  depth.  The  rains  began  before  the 
experiments  of  the  engineers  were  finished,  but  the  conclusion  was 
reached  that  a  water  supply  adequate  even  in  time  of  drought  could  be 
developed. 

FREE    DISPENSARY. 

A  free  dispensary  is  operated  by  the  board  of  health.  Six  thousand 
six  hundred  and  fifty-eight  prescriptions,  practically  all  of  which  were 
for  Filipinos,  were  filled  during  the  year.  This  number  is  very  small. 
The  less  intelligent  Filipinos  disbelieve  in  the  efficacy  of  medicines,  and 
trust  rather  to  that  of  prayer,  and  the  fact  that  there  is  but  one  dis- 
pensary and  that  transportation  is  at  present  expensive  and  difficult 
to  obtain  is  also  an  important  factor  in  the  general  result. 

NEW   MORGUE. 

Until  within  a  short  time  the  only  morgue  facilities  in  the  city  were 
afforded  by  tents  located  on  the  San  Lazaro  Hospital  grounds.  Recently 
a  thoroughly  modtn-n  morgue  building,  ample  in  size  to  meet  all  the 
needs  of  the  city,  has  been  completed. 


562  REPORTS    OF    THE    CIVIL    GOVERNMENT 

LOSS   OF   rKOPEKTY    IN    TUOZO    FIKE. 

In  the  destrnetive  Trozo  fire,  which  occurred  in  May,  1908,  and 
rendered  about  20,000  persons  homeless  within  a  period  of  two  hours, 
the  board  of  licaltli  corral,  buildings  of  the  pail  conservancy  system, 
clu)lera  hospital,  and  detention  camp  were  destroyed,  together  with 
practii'ally  all  the  pioperty  which  they  contained,  o)'  which  was 
on  the  ground  adjacent  to  them,  except  pul)lic  animals,  involving" 
a  total  loss  to  the  board  of  health  of  more  than  $45,000,  United  States 
currency.  The  emergency  this  presented  was  promptly  and  eti'ectively 
met  by  the  board,  and  its  operations  were  interrupted  for  a  period  of 
but  twelve  hours.  On  the  following  day  the  board  supplied  tentage 
to  all  homeless  people  who  had  been  unable  to  secure  shelter.  Before 
the  natives  would  use  the  tents  it  was  necessary  to  post  notices  on  each 
to  the  effect  that  no  charge  would  be  made  for  occupying  it.  A  sani- 
tary organization  was  created  for  the  burnt  district,  temporary  latrines 
were  established,  and  the  high  rate  of  sickness  which  usually  follows 
catastrophes  of  this  sort  was  averted.  This  is  ))ut  one  of  several  occur- 
rences during  the  year  which  have  demonstrated  that  the  board  of 
health  is  not  only  a])le  to  cope  with  the  diiliculties  which  constantly 
confront  it,  Init  can  and  does  successfully  meet  great  emergencies. 

UNHEALTHFUL   CONDITION    OF   BILIBID   PRISON. 

The  commissioner  of  public  health  calls  attention  in  his  report  to  the 
unhealthfulness  of  Bilibid  Prison.  It  appears  that  there  were  213 
deaths  among  the  convicts,  with  an  average  daily  number  of  2,152 
imprisoned.  This  gives  an  annual  death  rate  of  99  per  thousand, 
which  is  nearly  three  times  greater  than  that  for  the  general  popula- 
tion of  Manila  during  the  same  period.  This  death  rate  is  highly 
excessive,  and  its  cause  should  be  made  the  subject  of  immediate  and 
searching  investigation. 

BOARD   OF    HEALTH    SUPPORTED   BY   MANILA   COURTS. 

The  board  of  health  has  received  assistance  of  the  utmost  value  in 
the  enforcement  of  sanitary  laws  from  the  courts  of  Manila,  and  the 
belief  which  seems  to  have  existed  in  certain  quarters  that  these  laws 
would  not  be  enforced  against  wealthy  and  influential  persons  has  been 
shattered.  Without  such  judicial  support  the  sanitary  work  of  the 
city  would  have  been  paralyzed.  Conditions  have  been  less  satisfac- 
tory in  the  i^rovinces,  where  few  convictions  have  been  obtained. 

SANITARY   LAWS   NOT   SATISFACTORY. 

The  commissioner  of  public  health,  in  his  annual  report,  invites' 
attention  to  the  fact  that  the  laws  for  the  sanitary  government  of  the 
city  of  Manila  are  incomplete,  inconsistent,  and  do  not  properly  meet 
the  needs  of  the  situation,  and  that  the  functions  and  powers  of  the 
board  of  health  and  its  officials  are  much  confused  by  the  provisions 
of  acts  157  and  183  of  the  Philippine  Commission.  In  this  connection 
it  may  with  propriety  be  suggested  that  it  is  the  function  of  the  board 
of  health  for  the  Philippine  Islands  to  draft  necessary  sanitary  legis- 
lation for  submission  to  the  Commission,  and  that  repeated  requests 


OF    THE    PHILIPPINE    ISLANDS,    1900-11)0.?.  503 

for  drafts  of  acts  which  would  remedj^  the  existing-  situation  have  been 
made  by  me.  It  is  therefore  satisfactory  to  learn  from  the  above- 
mentioned  report  that  drafts  of  such  laws  as  appear  to  be  necessary 
have  been  prepared  and  are  under  consideration  by  the  board.  1  trust 
that  the  legislation  drafted  by  the  board  of  health  may  soon  be  pre- 
sented to  the  Commission. 

LEGISLATION   DRAFTED   BY   THE   BOARD. 

Acts  regulating  the  practice  in  the  Philippine  Islands  of  dentistry, 
pharmacy,  and  medicine  and  surgery,  the  original  drafts  of  which  were 
prepared  by  the  board  of  health,  have  been  passed  by  the  Commission 
during  the  past  year.     The  board  has  also  drafted: 

An  act  regulating  the  manufacture  and  sale  of  aerated  mineral  and  bottled  waters, 
sirups,  beers,  or  other  drinks  in  which  water  is  used. 

An  act  providing  for  the  safe  and  humane  transportion  of  animals  by  water  m  the 
Philippine  Islands.  v        ■     ii. 

An  act  relative  to  the  immunization  and  movement  of  cattle  and  carabaos  m  the 
Philippine  Islands.  ,     t>,  -i-      .      t  i      i 

An  act  relative  to  the  quarantining  of  equines  imported  nito  the  Phihppme  Islands, 
and  for  the  control  of  surra  or  trypanosomiasis. 

An  act  relative  to  the  establishment  of  a  training  school  for  Fdipmo  nurses. 

An  act  providing  for  the  quarantining  and  compulsory  inoculation  aganist  rm- 
derpest  of  horned  animals  in  the  Philippine  Islands. 

The  board  has  also  drafted  and  submitted  to  the  municipal  board  of 
Manila  an  ordinance  regulating  plumbing;  the  issuance  of  plumljers' 
licenses;  house  drainage,  and  the  making  of  openings  in  the  streets; 
and  an  ordinance  relative  to  the  period  of  detention  of  smallpox  and 
plague  cases  and  suspects. 

THE   CHOLERA   EPIDEMIC. 

The  cholera  epidemic  is  at  present  w^earing  itself  out  in  the  more 
remote  parts  of  the  archipelago,  with  occasional  active  outbreaks  at 
different  points.  The  statistics  have  not  yet  been  thoroughly  digested, 
and  a  full  discussion  of  the  epidemic  will  be  postponed  until  it  is  ended 
and  can  be  treated  as  a  whole.  Some  general  facts  can,  however,  be 
given  at  this  time.  Up  to  September  1,  1903,  there  were  officially 
reported  for  the  islands  157,036  cases  of  cholera,  with  102,109  deaths. 
These  num})ers  proba])ly  do  not  represent  more  than  two-thirds  of  the 
cases  and  deaths  which  have  actually  occurred.  Many  towns  were 
without  physicians  or  other  persons  capable  of  recognizing  cholera,  so 
that  numerous  cases  were  not  properly  diagnosed.  Many  of  the  munic- 
ipalities had  no  sanitary  organization,  and  no  statistics  are  available 
with  reference  to  the  mortality  among  the  Pagan  tribes.  In  numerous 
instances  the  sick  were  concealed  and  false  statements  were  made  as  to 
the  cause  of  death,  so  that  official  returns,  where  they  exist,  can  not 
be  accepted  as  complete.  i     •  i     j 

The  epidemic  eventually  spread  to  nearly  every  part  of  the  islands. 
Land  quarantines  were  usually  ultimately  ineffective,  although  there 
was  a  noteworthy  exception  in  the  case  of  the  province  of  Lepanto- 
Hontoc,  which  can  l)e  entered  only  by  a  few  narrow  mountain  trails 
and  was  effectively  protected  l)y  quarantine  so  that  it  escaped  the  dis- 
ea.se  completely.  The  province  of  Ahra,  somewhat  similarly  situated, 
was  also  fortunate,  the  number  of  cases  being  very  limited. 


r)(>4 


REPORTS    OK    TlIK    CIVIL    (}OVERNMENT 


As  stated  in  my  previous  report,  it  was  demonstrated  over  and  over 
ag-ain  that  the  disease  could  be  stamped  out  in  any  town  where  the 
necessary  men  and  means  were  availal)le.  Small  native  sailboats  and 
canoes  were  the  chief  factors  in  disseminating  the  infection.  It  is  in 
the  nature  of  thing-s  impracticable  to  control  their  movements,  and  as 
the  distances  between  islands  are  short  the  disease  was  readily  spread 
in  this  way. 

The  total  cases  in  Manila  to  date  have  been  5,112,  with  3,958  deaths, 
giving-  a  case  mortality  of  77.2  per  cent.  During  the  year  there  have 
occurred  in  JNlanila  1,170  cases,  with  Si)-1  deaths,  giving  a  case  mortal- 
ity of  75.8  per  cent.  There  have  been  3,309  cases  and  2,568  deaths 
among  males,  and  1,789  cases  and  1,381:  deaths  among  females.  In  14 
cases  the  sex  was  not  noted.  These  figures  show  that  the  number  of 
males  affected  has  been  about  twice  that  of  females,  due  doubtless  to 
the  greater  exposure  to  infection  of  the  former  while  Avorking  on  the 
water  front  and  eating  in  the  small  shops  where  food  is  sold  to  laborers. 

The  cases  in  Manila  have  been  distributed  by  races  as  follows: 


Race. 

Cases. 

Deaths. 

Case  mor- 
tality. 

Americans 

163 

63 

383 

4,457 
35 
9 

77 
35 
187 
3,635 
22 
2 

Per  cent. 
47  2 

Europeans 

55  7 

Chinese 

48  8 

Filipinos 

81  6 

All  others 

62  8 

Not  stated 

These  figures  show  a  higher  power  of  resistance  to  the  disease  for 
Americans  than  for  any  other  nationality.  The  number  of  Chinese 
who  have  developed  the  disease  is  comparatively  small,  their  relative 
immunity  being  doul)tless  due  to  the  fact  that  the}'  use  chiefly  cooked 
food  and  boil  their  water  in  preparing  tea.  The  number  of  Americans 
who  contracted  the  disease  is  disproportionately  high,  but  the  cases 
occurred  chiefly  among  soldiers  who  defied  military  orders  and  sani- 
tary regulations,  and  among  loafers  on  the  water  front. 

Curiously  enough,  the  mortality  statistics  seem  to  show  that  the 
t3'pe  of  the  disease  during  the  latter  part  of  the  present  j^ear  has  been 
more  fatal  than  that  which  prevailed  last  year,  although  we  have  had 
only  one-tenth  as  many  cases.  These  figures,  in  the  opinion  of  the 
commissioner  of  public  health,  represent  the  result  of  a  more  effective 
sanitary  organization  of  the  city,  where  he  thinks  the  natural  condi- 
tions are  fully  as  favorable  to  the  development  of  a  widespread  epi- 
demic this  year  as  a  year  ago.  It  seems,  however,  that  epidemics  of 
cholera  tend  to  be  self-limiting,  and  it  is  possible  that  more  impor- 
tance should  be  attached  to  this  element  of  the  case  than  has  been  given 
it  in  the  report  referred  to. 

An  investigation  of  the  ages  of  the  cholera  victims  shows  that  early 
adult  life  is  the  period  in  which  recovery  is  most  likely  to  occur,  the 
mortality'  being  highest  among  young  children  and  aged  persons. 
There  can  be  no  doubt  as  to  the  efficiency  of  the  organization  which 
the  board  of  health  has  had  in  the  field  for  fighting  cholera  and  bubonic 
plague  in  Manila,  and  the  commissioner  of  public  health  and  his  col- 
leagues are  certainly  to  be  congratulated  upon  the  results  obtained. 
P'or  a  time  cholera  completely  disappeared,  but  a  recrudescence  occurred 
with  the  beginning  of  the  rains,  a  condition  of  affairs  which  was  antici- 
pated. 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  565 

BUBONIC   PLAGUE. 

During  the  j^ear  there  has  been  an  epidemic  of  bubonic  plague  in 
the  city,  aggregating  about  200  cases.  It  is  believed  by  the  health 
authorities  to  have  been  developed  from  some  slight  infection  which 
maintained  itself  in  the  city  subsequent^  to  the  energetic  repressive 
measures  carried  out  in  1901,  which  resulted  in  the  development  of  but 
9  cases  of  the  disease  in  1902.  It  is  not,  however,  certain  that  the  dis- 
ease was  not  imported  fr9m  abroad,  as  it  has  existed  all  along  the 
neighboring  Asiatic  coast.  * 

During  the  year  plague  has  prevailed  to  an  alarming  extent  in  many 
of  the  cities  of  the  world,  and  seems  to  have  been  increasing  in  sever- 
ity. Considering  that  the  manner  of  its  appearance  and  early  devel- 
opment in  Manila  has  been  almost  identical  with  what  has  occurred  in 
other  oriental  cities  which  have  suffered  severely,  there  is  every  reason 
to  believe  that  a  serious  epidemic  has  once  more  been  averted  through 
the  ability  and  energy  of  the  members  of  the  insular  board  of  health 
and  the  effectiveness  of  the  preventive  measures  employed  by  them. 

S3IALLPOX. 

During  the  year  there  have  been  99  cases  of  smallpox  in  Manila, 
with  16  deaths.  Nine  of  these  cases,  with  ■!  deaths,  occurred  among 
Americans,  a  number  of  whom  were  not  protected  by  vaccination.  In 
the  provinces  several  outbreaks  of  this  disease  have  occurred;  and 
those  in  the  Cagayan  Valley,  in  the  province  of  Ambos  Camarines  and 
in  several  of  the  southern  islands  were  particularly  severe.  In  every 
case  vaccinators  were  sent  to  the  scene  of  trouble  by  the  board  of 
health  if  they  could  not  be  provided  by  the  local  provincial  authorities, 
and  excellent  results  were  obtained  where  vaccination  could  be  effec- 
tively carried  out. 

The  reports  of  Senor  Saturnino  Espcjo,  chief  vaccinator  under  both 
Spanish  and  American  administrations,  show  the  following  vaccina- 
tions in  Manila: 

From  November  3, 1894,  to  November  25, 1898  (four  years  and  three  weeks) .  9, 136 

November  and  December,  1898  ( two  months ) .' 10, 477 

1899 103,931 

1900 60, 592 

1901 68, 144 

1902 96,823 

September,  1902,  to  September,  1903 154,  706 

In  other  words,  70  per  cent  of  the  population  have  been  vaccinated 
during  the  past  year.  Forty-three  and  six-tenths  per  cent  of  these 
vaccinations  were  successful.  As  these  figures  include  man}^  revacci- 
nations,  the  excellent  qualitj^  of  the  virus  used  is  shown.  No  bad 
results  are  known  to  have  developed  from  vaccination  in  any  instance. 
Smallpox  has  ceased  to  be  a  factor  of  importance  in  the  Manila  death 
rate.  The  cases  which  occur  are  chiefly  among  transients  not  pro- 
tected by  vaccination,  and  the  death  rate  for  this  class  of  persons  is 
very  high.  Two  American  school  teachers,  recently  arrivect  from  the 
provinces,  who  had  evaded  vaccination,  developed  the  disease  and  died. 

Vaccination  in  the  provinces  is  usuall}'^  carried  out  by  vaccinators 
under  the  provincial  boards  of  health,  ])ut  where  provincial  funds  are 
not  available  for  this  work  the  necessary  vaccinators  are  employed  by  the 


5()(>  REPORTS    OF    THE    CTVIL    OOVERNMKNT 

insular  board  of  health.  Full  returns  showino-  the  number  of  vaccina- 
tions durino-  the  past  year  arc  not  as  yet  available,  but  1,101,909  units  of 
vaeeine  have  been  issued  for  use,  and  approximately  onO'eij^hth  of  the 
total  population  of  the  islands  has  been  vaccinated.  It  is  proposed  to 
contiiuie  this  work  until  the  entire  population  of  the  islands  is  pro- 
tected ao-uinst  smallpox,  which  was  formerly  the  great  scourge  of  the 
archipelago.  At  the  present  rate  of  progress  the  day  is  not  far  distant 
when  this  result  will  have  been  obtained. 

SMALL   NUMBER   OF   DEATHS   FROM    MALARLA. 

Malarial  disease  is  less  common  and  dangerous  in  the  Philippines 
than  in  many  other  tropical  countries.  The  deaths  in  Manila  from 
malaria  during  the  year  have  been  but  226. 

DEATHS   FROM    DYSENTERY. 

There  have  been  236  deaths  during  the  year  from  dysentery,  a  dis- 
ease which  seems  to  result  almost  invariably  from  the  use  of  impure 
water.  The  city  water,  is  unsafe  and  unquestionably  carries  the 
organisms  which  produce  dysentery.  When  pure  water  has  been 
made  available  for  drinking  purposes  the  mortality  from  this  disease 
should  rapidly  decrease. 

NUMBER   OF   LEPERS   IN   THE   PHILIPPINES. 

Continued  investigations  as  to  the  prevalence  of  leprosy  in  the 
archipelago  give  reason  for  the  belief  that  the  number  of  lepers  is 
smaller  than  heretofore  supposed.  The  board  of  health  has  records 
of  3,323  lepers,  and  while  its  records  are  by  no  means  complete,  the 
commissioner  of  public  health  estimates  the  lepers  in  the  islands  at 
less  than  6,000.  At  present  but  434  are  segregated  in  leper  hospitals. 
Apparatus  for  the  treatment  of  leprosy  with  the  X-ray  and  the  Finsen 
ray  have  but  very  recently  been  furnished  the  San  Lazaro  Leper  Hos- 
pital, and  no  statement  can  as  yet  be  made  as  to  the  efficacy  of  treat- 
ment with  these  rays. 

BERIBERI    IN   MANILA. 

Beriberi  is  one  of  the  more  important  causes  of  death  among  Fili- 
pinos and  Chinese,  and  is  especially  prevalent  among  the  poorer 
classes.  Very  few  cases  of  this  disease  occur  among  whites.  There 
were  313  deaths  from  this  cause  during  the  year.  A  severe  outbreak 
occurred  among  the  convicts  confined  in  Bilibid  prison,  but  no  white 
persons  v/ere  attacked. 

INSPECTION   OF  ANIMALS. 

During  the  year  95,360  animals  were  inspected  on  arrival  at  the 
port  of  Manila  by  veterinarians  of  the  board  of  health;  91,442  were 
inspected  prior  to  slaughter,  and  394  animals  were  condemned  for 
disease  and  their  bodies  were  cremated. 

PREVENTION    OF   RINDERPEST. 

Very  important  work  for  the  prevention  of  rinderpest  has  been 
carried  out  during  the  year  by  agents  of  the  board  of  health,  the 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  567 

bureau  of  government  laboratories,  and  the  bureau  of  agriculture.  The 
method  of  simultaneous  inoculation  with  the  blood  of  diseased  animals 
and  a  proph^dactic  serum  has  been  so  perfected  that  less  than  ii  per 
cent  of  the  animals  inoculated  have  succumbed  as  a  result  of  the  oper- 
ation. The  inoculation  is  effective  in  stopj)ing  the  ravages  of  the  dis- 
ease, and  the  agents  above,  referred  to  have  been  sent  to  points  in  the 
provinces  where  it  has  appeared  and  have  carried  out  their  work  with 
marked  success. 

QUARANTINING   OF   IMPORTED    ANIMALS   NECESSARY. 

The  urgent  necessity  for  the  establishment  of  quarantine  stations 
for  animals  imported  has  been  made  evident  during  the  past  year  by 
the  bringing  in  of  that  highly  infectious  and  extremely  fatal  disease, 
hsemorrhagic  septicemia,  which  was  introduced  in  the  month  of  May 
by  a  small  herd  of  carabaos  imported  from  Hongkong.  Of  the  various 
animals  exposed  to  the  infection  while  en  route  and  after  arrival,  all 
contracted  the  disease  and  died.  Fortunately,  its  infectious  nature 
and  dangerous  character  were  recognized  before  the  infected  herd  had 
left  quarantine. 

With  the  extensive  purchases  of  animals  which  the  government  is 
making  abroad,  especial  care  is  necessary  to  prevent  the  introduction 
of  dangerous  epidemic  diseases.  Much  difficulty  has  been  experienced 
in  securing  suitable  ground  for  a  cattle  quarantine  station  at  Manila, 
but  a  tract  on  the  range  of  hills  near  San  Felipe  Neri  has  finally  been 
leased.  Cattle  will  be  taken  up  the  river  in  lighters  and  unloaded  on 
a  wharf  extending  into  the  San  Juan  River  near  its  junction  with  the 
Pasig.  The  lot  is  approximately  15  acres  in  extent,  and  will  be  divided 
into  10  sections  ]\y  double  fences.  One  section  will  be  fitted  up  with 
inoculation  stalls^  and  will  contain  the  offices  and  feed  house.  The 
otlier  9  sections  will  be  divided  by  single  fences  into  4  pens,  each 
large  enough  to  hold  50  head  of  stock.  Each  of  these  pens  will  con- 
tain a  feed  house,  watering  trough,  and  shed  for  sheltering  the 
animals.  The  work  on  the  station  is  being  pushed  rapidly,  and  it  is 
proposed  to  establish  similar  stations  at  the  earliest  practicable  time  at 
the  other  ports  of  entry  of  the  archipelago. 

LOCUST    PEST. 

Very  heavy  losses  have  been  inflicted  upon  agriculturists  during  the 
past  year  by  the  depredations  of  enormous  flocks  of  locusts.^  The 
destruction  caused  by  these  insects  has  been  a  serious  factor  in  the 
existing  agricultural  depression.  Numerous  attempts  to  destroy 
flocks  of  locusts  by  infecting  them  with  fungous  disease  have  been 
made  by  agents  of  the  board  of  health.  In  a  number  of  instances, 
especially  during  the  dry  season,  these  attempts  have  been  without 
any  apparent  result.  In  other  instances  the  use  of  the  fungus  has 
proved  very  effective.  At  the  town  of  Dimiao,  in  the  province  of 
Bohol,  for  instance,  locusts  weighing  approximately  half  a  ton  were 
destroyed.  Young  locusts  not  able  to  fly  appear  to  resist  the  action 
of  the  fungus  at  all  times,  and  can  best  be  disposed  of  by  driving 
them  into  trenches  dug  in  the  line  of  their  march  and  burning  them 
or  covering  them  with  earth. 

The  poor  country  people,  for  whom  locusts  are  an  important  arti- 
cle of    food,  are,   in   many   instances,  opposed  to  their  destruction. 


568  REPORTS    OF    THE    CIVIL    GOVERNMENT 

Persons  who  cat  locusts  which  have  been  infected  with  funo-ous  disease 
sutfer  from  severe  intestinal  irritation.  The  planters  are  naturally 
anxious  to  see  an  end  put  to  the  pest  which  so  seriously  daiuao'cs  their 
crops.  The  Connuission  has  recently  passed  an  act  creating  provin- 
cial locust  boards  and  authorizing  the  calling  out  of  practically 
every  able-bodied  man  in  a  given  locality,  under  severe  penalties,  for 
noncompliance  to  tight  these  pernicious  insects.  It  is  hoped  that  by 
these  several  means  the  scourge  may  ultimately  be  controlled.  Neg- 
lect of  proper  restrictive  measures  during  the  long-continued  period 
of  disorder  beginning  in  1896  is  undoubtedly  responsible  for  the 
present  serious  condition  of  affairs. 

SANITARY    CONDITIONS   IN    THE    PROVINCES. 

The  sanitary  condition  of  the  provincial  towns,  while  greatly 
improved,  is  still  very  far  from  satisfactory.  A  serious  difficulty  is 
encountered  in  the  lack  of  a  sufficient  number  of  Filipino  physicians 
properly  qualified  for  carrying  on  this  work.  Unquestionably  one 
of  the  great  needs  of  the  archipelago  at  the  present  time  is  a 
thoroughly  modern  medical  school.  Numerous  municipalities  are 
without  ph3^sicians  of  any  sort,  while  the  superstitious  beliefs  of  many 
of  the  inhabitants  as  to  the  causes  of  contagious  disease  are  a  serious 
obstacle  in  the  way  of  improving  sanitary  conditions.  This  difficulty 
must  be  patiently  and  persistently  met.  Many  years  will  elapse  before 
it  can  be  overcome. 

The  presidents  of  provincial  boards  of  health  are,  with  very  few 
exceptions,  Filipinos.  Among  them  are  a  number  of  men  who  have 
shown  energy  and  ability.  Others  proved  incompetent  during  the 
cholera  epidemic,  but  it  has  not,  in  most  instances,  been  possible  to 
replace  them,  as  the  available  material  for  these  positions  was  practi- 
cally exhausted  b}"  the  original  appointments.  Pressure  of  work  due 
to  the  cholera  epidemic  and  other  causes  has  prevented  the  exercise  of 
the  needed  supervision  over  provincial  boards  of  health  b}^  the  com- 
missioner of  public  health,  but  during  the  early  part  of  the  present 
year  a  number  of  medical  officers  were  sent  through  various  provinces 
for  the  purpose  of  examining  into  and  reporting  upon  their  sanitary 
and  economic  conditions  and  the  efficiency  or  lack  of  efficiency  of  their 
health  boards. 

For  further  information  relative  to  the  work  of  the  board  of  health 
for  the  Philippine  Islands  and  the  city  of  Manila,  reference  is  made 
to  the  report  of  the  commissioner  of  public  health,  which  is  appended 
hereto  and  marked  Appendix  A. 

THE  QUARANTINE  SERVICE. 

The  importance  of  quarantine  work  in  the  Philippine  Islands  is  well 
shown  b}^  the  fact  that  during  the  past  year  there  have  arrived  at  the 
port  of  Manila  68  vessels  with  cholera  on  board,  and  that  cholera 
developed  on  37  other  vessels  during  the  time  they  were  serving  their 
outgoing  quarantine. 

The  long  duration  of  the  cholera  epidemic  taxed  to  the  utmost  the 
resources  of  the  quarantine  stations  and  the  strength  of  the  quarantine 
officials.  The  thoroughness  of  the  work  performed  is  conclusively 
shown  bv  the  fact  that  of  the  10.5  cholera-infected  vessels  disinfected 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  569 

at  the  Mariveles  quarantine  station,  only  one  developed  the  disease  after 
being  released  from  quarantine,  and  on  that  vessel  it  developed  in  the 
ship's  hospital  among  d^^sentery  patients. 

Although  plague  has  been  epidemic  at  Hongkong  and  Amoy,  the 
work  of  the  quarantine  officers  at  these  ports  has  been  so  effective  that 
it  has  not  been  possible  to  trace  a  single  case  of  this  disease  in  Manila 
to  infection  from  without. 

With  a  view^  to  preventing  the  spread  of  plague,  an  effort  has  been 
made  to  fumigate  with  sulphur  all  vessels  whi(;h  enter  the  port  of 
Manila,  and  few  vessels  have  come  in  during  the  year  which  have  not 
been  fumigated  at  least  once.  This  work  has  undoubtedly  been  of 
great  value  in  preventing  the  spread  of  plague  from  Manila  to  other 
ports  of  the  islands  by  destro^dng  the  rats  and  other  vermin  which 
carry  it.  Two  vessels  on  which  plague  was  reported  to  have  occurred 
while  they  were  lying  in  Manila  Harbor  were  disinfected  at  the 
Mariveles  station.     No  further  cases  occurred  in  either  instance. 

Five  vessels  arrived  at  Manila  with  smallpox  on  board.  The  dis- 
ease was  in  each  instance  stamped  out  in  the  usual  way. 

Leprosy  was  detected  on  five  vessels.  Four  of  the  cases,  which 
were  in  transit  to  Hongkong,  were  sent  to  the  San  Lazaro  Leper  Hos- 
pital; the  tifth,  which  came  from  Hongkong,  was  returned  to  that 
place. 

The  ports  of  Iloilo  and  Cebu  have  been  supplied  with  floating  dis- 
infecting plants,  so  that  it  is  now  no  longer  necessary  to  send  vessels 
infected  with  quarantinable  disease  from  these  ports  to  the  Mariveles 
station,  and  heavy  losses  of  time  and  money  to  ship  owners  are  thus 
prevented. 

As  the  history  of  epidemics  in  the  islands  prior  to  American  occupa- 
tion showed  that  some  of  them  had  entered  from  the  south,  a  quaran- 
tine station  was,  after  due  investigation,  opened  at  Jolo  on  the  6th  of 
May,  1003. 

Thirt}'  thousand  dollars  have  been  appropriated  b}^  the  Commission 
for  the  construction  of  a  quarantine  station  at  Cebu,  and  when  this 
station  is  completed  it  is  proposed  to  move  the  floating  plant  now  at 
Cebu  to  Jolo. 

Difficulty  has  been  experienced  during  the  year  in  properly  caring 
for  persons  suffering  from  quarantinable  disease  who  arrived  at  Iloilo 
on  vessels.  It  is  hoped  that  a  quarantine  reservation  with  adequate 
facilities  for  the  detention  of  passengers,  the  disinfection  of  their 
effects,  and  the  care  of  the  sick  may  be  secured  there  in  the  near 
future. 

The  Mariveles  quarantine  station  has  proved  adequate  to  meet  the 
strain  thrown  upon  it  by  the  cholera  epidemic,  except  in  the  matter  of 
facilities  for  housing  steerage  passengers.  At  present  ])ut  about  800 
can  be  accommodated,  and  existing  facilities  should  be  increased. 

An  important  discover}^  of  practical  value  with  reference  to  the  dis- 
tribution of  the  cholera  germ  in  the  Tasig  River  was  made  by  Assist- 
ant-Surgeon Long.  It  was  noted  that  most  of  the  cases  which  occurred 
on  board  vessels  during  the  latter  part  of  May  wei-e  on  those  lying  on 
the  shallow  side  of  the  Pasig  River  or  at  other  places  where  bends  and 
turns  rendered  the  water  shiggish,  and  Doctor  Long's  investigations 
showed  that  cholera  germs  were  present  in  large  numbers  at  places 
where  the  water  was  sluggish,  while  few  or  none  were  found  where 
the  current  was  swift. 


570 


KKI'OKTS    OK    TIIK    (^IVIL    GOVERNMENT 


In  addition  to  the  disint'octino-  work  previously  mentioned,  119  ves- 
sels were  disinfeeted  because  they  came  from  infected  ports.  There 
is  probahl}'  only  one  station  in  the  world  where  more  disinfection  has 
been  accomplished  during-  the  past  year  than  at  Marivelcs. 

In  addition  to  the  work  above  mentioned,  the  surgeons  conducted 
physical  examinations  of  masters,  pilots,  patrons,  and  engineers,  and 
of  the  men  who  entered  the  insular  coast-guard  service,  examining  a 
total  of  103  applicants,  11  of  whom  were  rejected.  Commencing  with 
the  fiscal  year  1904,  examinations  of  arriving  aliens  will  also  be  made 
b}'  this  service. 

The  large  amount  of  quarantine  work  performed  in  the  Philippine 
Islands  during  the  past  year  is  shown  in  the  following  table: 


Cebu. 


Iloilo. 


Jolo. 


Vessels  Inspected 

Vessels  quarantined 

Infected  vessels  disinfected 

Vessels  fumigated  to  kill  rats 

Bills  of  health  issued 

Pieces  of  baggage  disinfected 

Pieces  of  baggage  inspected  and  passed 

Number  of  crew  detained  in  quarantine 

Passengers  detained  in  quarantine 

Number  of  crew  inspected 

Passengers  inspected 

Persons  vaccinated 

Persons  bathed  and  effects  disinfected 

Suspects  and  contacts  quarantined  at  least  five  days 

Number  of  cases  of  quarantinable  disease  detected  on  vessels: 

Cholera 

Smallpox 

Plague 

Leprosy 


4, 
75, 
23, 
11, 
16, 
198, 
185, 
4; 
25, 


861 
355 
244 

182 
270 
739 
940 
399 
247 
885 
171 
647 
862 
,973 

115 

7 
2 
6 


3,985 

377 

43 

11 

1,766 

2, 247 

297 

4,482 

1,319 

74, 380 

22,818 

125 

844 

873 

46 
3 


2,232 

157 

28 

7 

1,722 

1,847 

7, 189 

1,737 

1, 175 

44,973 

26, 371 

932 

741 


126 

1 

1 

92 


4,341 
3,359 


Dr.  J.  C.  Perry,  who  had  from  January  17,  1900,  faithfully  and 
efficiently  discharged  the  duties  of  chief  quarantine  officer  for  the 
Philippine  Islands,  was  succeeded  on  March  23, 1903,  by  Dr.  Victor  G. 
Heiser,  who  prepared  the  accompanying  excellent  report  of  the  quar- 
antine service  for  the  present  year  (Appendix  B),  to  which  reference 
is  made  for  further  information  lelative  to  the  quarantine  service  in 
the  Philippine  Islands  during  that  period. 


THE  CIVIL  HOSPITAL. 

The  work  of  the  civil  hospital  has  been  highly  satisfactory  during 
the  year,  although  the  strength  of  the  working  force  has  been  at  times 
very  greatly  overtaxed  as  a  result  of  the  closing  of  the  women's  hos- 
pital and  failure  to  carry  out  the  plan  for  a  general  hospital  for  Manila 
supported  by  private  funds.  It  was  therefore  necessary  to  open  the 
civil  hospital  to  the  general  public,  with  the  proviso  that  in  case  of 
overcrowding  civil  officers,  emplo3^ees,  and  members  of  their  families 
should  be  given  preference  in  securing  admission. 

The  position  of  assistant  attending  physician  and  surgeon  has  been 
abolished,  and  an  additional  house  surgeon  has  been  provided  for. 

The  total  number  of  patients  admitted  to  the  hospital  during  the  year 
was  1,915.     Of  these  92  were  treated  by  outside  physicians. 

To  meet  the  increased  burden  of  work  imposed  by  the  admission  of 
patients  other  than  civil  officers,  employees,  and  members  of  their  fami- 
lies the  number  of  nurses  has  been  augmented. 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  57l 

The  equipment  of  the  hospital  lias  been  considerably  increased,  and 
now  leaves  little  to  be  desired.  The  ambulance  service  has  been  greatly 
improved.  The  hospital  stables  are  connected  with  the  police  and  fire- 
alarm  system.  The  ambulance  horses  have  been,  through  the  kindness 
of  Chief  Bonner,  of  the  tire  department,  trained  like  fire-engine  horses. 
Drop  harnesses  and  chains  have  been  provided,  and  the  loss  of  time  in 
reaching  emergency  cases  has  thus  been  reduced  to  a  minimum. 

Better  quarters  than  those  heretofore  available  have  been  secured 
for  the  nurses,  who  have  <'ontinued  to  render  faithful  and  efficient 
service  which  has  contributed  in  a  large  degree  to  the  success  of  the 
institution. 

It  would  seem  that  little  could  be  done  to  increase  the  efficiency  of 
the  existing  institution  in  its  present  quarters.  I  desire,  however,  to 
emphasize  the  fact  that  the  accommodations  which  it  affords,  while 
sufficient  for  civil  officers,  employees,  and  members  of  their  families, 
are  grossly  inadequate  to  meet  the  needs  of  the  other  inhabitants  of 
the  city  of  Manila.  The  necessity  for  a  large  general  hospital,  con- 
structed on  the  pavilion  plan,  is  most  urgent.  Plans  for  the  establish- 
ment of  such  an  institution  are  at  present  under  consideration,  and  it 
is  hoped  that  the  work  of  carrying  them  out  may  at  least  be  actively 
begun  during  the  coming  3'ear. 

For  detailed  information  with  reference  to  the  work  of  the  civil 
hospital,  and  especially  with  reference  to  the  number  and  character 
of  cases  treated  by  the  hospital  staff,  attention  is  invited  to  the  annual 
report  of  the  attending  physician  and  surgeon,  which  is  appended 
hereto  and  marked  Appendix  C. 

During  the  year  a  savage  attack  was  made  upon  the  administration 
of  the  civil  hospital,  and  especially  upon  the  attending  physician  and 
surgeon  in  charge,  by  the  police  surgeon  of  the  city  of  Manila,  who 
brought  charges  of  the  gravest  nature  against  the  attending  physician 
and  surgeon.  These  charges  were  at  first  couched  in  general  terms, 
without  names,  dates,  or  other  facts  upon  which  an  investigation  could 
be  based.  Eventually,  and  after  repeated  requests  from  me  that  they 
be  made  specific,  they  were  preferred  in  written  form,  and  in  such 
detail  that  an  investigation  was  possible.  I  devoted  my  afternoons 
for  several  weeks  to  the  hearing  of  witnesses  cited  by  the  police  sur- 
geon and  such  other  witnesses  with  a  knowledge  of  the  facts  as  could 
be  secured. 

The  investigation  clearly  demonstrated  the  fact  that  the  more  serious 
of  the  charges  against  the  attending  physician  and  surgeon  were  not 
only  wholly  false,  but  were  malicious  in  the  extreme;  and  upon  my 
reconmiendation,  concurred  in  by  the  civil  governor,  the  police  surgeon 
was  dismissed  from  the  government  service. 

THE  CIVIL  SANITARIUM  AT  BAGUIO,  BENGUET. 

The  substantial  improvement  made  in  the  Naguilian  trail  during  the 
past  year  has  rendered  it  comparatively  easy  to  send  convalescents  to 
the  civil  sanitarium  at  Baguio,  and  the  establishment  of  a  well- 
equipped  constabulary  commissary  depot  at  that  place  has  greatly 
facilitated  the  securing  of  supplies.  It  has  not  been  feasible,  however, 
to  provide  a  thorough!  v  satisfactory  diet  for  the  sick,  owing  to  the 
difficulty  of  getting  a  'sufficient  and  i-egular  supply  of  fresh  meat, 
poultry,  and  eggs,  and  the  impossibility  of  securing  milk.     The  pur- 


572  REPOKTS    OF   THE    CIVIL    GOVERNMENT 

cli;i8c  of  milch  cows  for  the  siuiittirium  has  now  been  authorized,  and 
the  raisinj*'  of  poultry  should  bc^  .systcuiaticaliy  undeitaken. 

Practical  experience  with  patients  sent  to  the  sanitarium  during  the 
past  year  has  confirmed  the  conclusion  previously  reached  that  sub- 
stantially the  same  results  arc  obtained  which  would  come  from  a 
transfer  for  the  same  length  of  time  to  some  temperate  region  in  the 
United  States. 

During  the  sojourn  of  the  Philippine  (\)mmission  at  Paguio  in  May 
and  flune,  11>0;^,  all  available  sj)ace  in  the  sanitarium  not  occupied  by 
patients  was  utilized  by  employees  of  the  Commission.  Action  has 
been  taken  b}'  the  Commission  providing  for  a  twenty-room  addition 
to  the  present  building  during  the  coming  dry  season. 

CHANGE   IN   RATES   AT   THE    SANITARIUM. 

The  charges  for  accommodation  at  the  sanitarium  have  been  lowered 
by  the  Commission  upon  my  recommendation,  and  are  at  present  $1 
per  day  for  patients  in  wards  and  $1.25  to  $1.50  per  day  for  those  in 
private  rooms,  but  a  charge  of  $3  per  day  is  made  for  private  rooms 
reserved  for  one  person.  It  has  been  made  optional  with  me  to  remit 
all  charges  in  the  case  of  persons  earning  a  salary  of  $1,500  or  less 
per  year.  It  is  the  purpose  of  the  insular  government  to  render  it 
feasible  for  any  officer  or  employee  who  needs  a  temporary  change  to 
a  temperate  climate  to  get  it  promptly  and  at  a  cost  within  his  means, 

GOVERNMENT   COTTAGES    ON   SANITARIUM   GROUNDS. 

Five  comfortable  cottages  have  been  erected  in  the  neighborhood  of 
the  sanitarium  for  rental  to  civil  officers  and  emplo3^ees  in  search  of  a 
change  of  climate  for  themselves  or  their  families.  All  of  these  cot- 
tages were  used  during  the  sta}^  of  the  Commission  at  Baguio,  and  two 
of  them  have  been  rented  for  the  coming  year.  A  third  has  been 
assigned  to  Maj.  L.  W.  V.  Kennon,  in  charge  of  the  Government 
improvements  in  Benguet,  and  a  fourth  to  Dr.  J.  B.  Thomas,  the  phy- 
sician and  surgeon  in  charge  of  the  sanitarium,  in  recognition  of  his 
faithful  and  efficient  services. 

REORGANIZATION   OF   SANITARIUM    EMPLOYEES. 

It  has  proved  difficult  satisf actoril}"  to  organize  the  force  of  employ- 
ees at  the  sanitarium,  for  the  reason  that  during  the  hot  season  at 
Manila  and  the  period  of  residence  at  Baguio  of  the  Commission  the 
institution  is  sure  to  be  overcrowed,  while  it  is  likely  to  be  almost 
empty  during  the  rains  of  August.  With  a  view  to  meeting  this  diffi- 
culty the  force  of  employees  was  materially  increased  at  the  sanita- 
rium. I  was  at  the  same  time  empowered  to  transfer  any  employee  of 
the  sanitarium  to  the  civil  hospital  at  Manila,  and  vice  versa.  This 
will  enable  me  at  will  to  cut  down  the  force  at  the  sanitarium  and 
augment  that  of  the  civil  hospital  at  Manila,  the  emploj^ees  of  which 
are  often  overtaxed,  and  at  the  same  time  will  render  it  possible  for 
me  to  send  to  Baguio  employees  of  the  civil  hospital  who  are  in  need 
of  a  change.  This  arrangement  should  greatly  increase  the  efficiency 
of  the  working  force  of  both  institutions. 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  573 

NEW   SANITARIUM   BUILDINGS   NEEDED. 

With  the  establishment  of  the  summer  capital  at  Baguio  and  the 
opening  of  through  rail  communication  with  Manila,  the  importance 
of  the  civil  sanitarium  will  be  greatly  increased.  The  present  Iniilding 
is  better  adapted  to  serve  as  a  boarding  house  and  dormitory  than  as  a 
hospital.  The  attending  physician  and  surgeon  in  charge  believes  that 
a  suitable  tract  of  land  within  the  Government  reservation  should  be 
set  aside  for  modern  hospital  buildings  on  the  pavilion  plan,  and  that 
provision  should  be  made  in  the  near  future  not  only  for  the  class  of 
patients  who  are  at  present  sent  to  Baguio  ])ut  for  tuberculosis  patients 
and  maternity  cases.  I  heartily  concur  in  this  opinion.  When  rail 
communication  has  been  established,  it  will  doubtless  be  desirable  to 
send  to  Baguio  most  surgical  cases  other  than  those  requiring  imme- 
diate treatment,  as  recuperation  will  be  nuich  more  rapid  and  danger 
of  infection  less  than  at  Manila.  In  planning  for  new  hospital  buildings 
adequate  provision  should  certainly  be  niade  for  the  performing  of  a 
considerable  amount  of  surgical  work. 

IMPROVEMENT   OF   SANITARIUM   GROUNDS. 

Under  the  able  direction  of  Mr.  Thomas  Hanley  the  sanitarium 
grounds  have  been  greatly  improved  during  the  past  year,  and  the  sum 
of  $2,500  United  States  currency  has  been  appropriated  for  their  further 
improvement. 

WORK    OF   THE    SANITARIUM. 

Many  of  the  persons  who  have  entered  the  sanitarium  were  in  need 
of  a  change  of  climate  but  could  not  properly  ])e  classed  as  patients. 

The  sick  persons  admitted  numbered  54.     Of  these  26  were  dis 
charged  cured,  25  improved,  2  not  improved,  and  1  died.     The  patient 
who  died  had  a  fractured  and  badly  crushed  leg. 

Among  those  who  derived  complete  relief  from  ailments  which  would 
probably  have  necessitated  departure  from  the  islands,  had  not  this 
delightful  mountain  resort  been  quite  readily  accessible,  were  Governor 
Taft  and  myself. 

For  further  information  as  to  the  work  of  the  sanitarium  during  the 
past  year  reference  is  made  to  the  report  of  Doctor  Fales,  the  acting 
attending  physician  and  surgeon  in  charge  during  the  absence  of  Dr. 
J.  B.  Thomas,  who  has  returned  to  the  United  States  on  leave,  which 
is  appended  hereto  and  marked  Appendix  D. 

THE  FORESTRY  BUREAU. 

There  has  been  a  continuance  during  the  past  year  of  the  steady 
development  and  improvement  which  have  characterized  the  work  of 
the  forestry  bureau  from  the  time  of  its  organization.  The  service 
was  established  on  April  U,  1900,  by  Capt.  George  P.  Ahern,  the  pres- 
ent chief  of  the  bureau,  assisted  by  8  men.  At  the  end  of  the  first  year 
the  force  numbered  84  men  and  the  revenue  collected  amounted  to 
$199,373.11,  Mexican.  At  the  close  of  the  second  year  the  force  had 
increased  to  125  men.  The  revenue  collected  during  this  year  amounted 
to  1348,073.08,  Mexican.  At  the  close  of  the  third  year  the  authorized 
force  amounted  to  224  men.     The  revenue  collected  during  the  year 

23181—04 37 


57-4  REPORTS    OF    THE    CIVIL    GOVERNMENT 

was  $527,414.85,  Mexican.  From  these  fiijures  it  appears  that  the 
steadyiiicroase  in  the  force  of  enn)loyees  has  ])een  a('eonjj)anied  by  an 
e(iuully  steady  increase  in  the  revenue  coUei-ted.  When  the  better 
protection  all'orded  the  j^overinnent  forests  by  this  au<>-nientation  of 
the  force  of  employees  is  taken  into  account,  it  will  l)e  seen  that  the 
money  spent  upon  their  salaries  has  been  well  invested. 

MODIFICATIONS   IN    FORESTRY    LAWS. 

A  moditication  was  made  in  the  uses  to  which  the  revenues  derived 
from  forest  products  are  put  by  act  No.  527,  which  provides  that  the 
expense  of  conducting  the  forestry  bureau  shall  be  deducted  from  the 
total  collections  and  that  the  balance  shall  be  returned  pro  rata  to 
the  provinces  md  umnicipalities  where  were  produced  the  products  on 
which  the  collections  were  made. 

Other  provisions  of  law  fixed  penalties  for  the  unlawful  cutting  or 
destruction  of  timber  on  military  reservations,  made  the  botanist  of 
the  bureau  of  agriculture  also  the  botanist  of  the  forestry  bureau,  and 
authorized  the  employment  of  six  school-teachers  as  collaborators  of 
the  forestry  bureau  during  their  school  vacations.  The  six  teachers 
authorized  were  appointed,  but  the  work  of  four  of  them  was  unsatis- 
factory. 

NEW   EMPLOYEES   OF   THE    FORESTRY   BUREAU. 

Mr.  Parker  T.  Barnes  was  selected  as  collector  of  forest  botany  after 
a  competitive  examination  held  in  the  United  States.  He  arrived  at 
Manila  December  28,  1902,  and  has  since  been  almost  continuously  in 
the  field  doing  very  satisfactory  work. 

A  cabinetmaker,  Mr.  T.  J.  Pifiard,  appointed  manager  of  the  work- 
shop, arrived  in  Manila  in  November,  1902,  and  was  followed  in  June, 
1903,  by  Mr.  John  Richter,  an  assistant.  By  act  No.  807,  passed  July 
27,  1903,  the  chief  of  the  forestr}^  bureau  was  authorized,  for  the  pur- 
pose of  promoting  the  proper  treatment  of  woods  in  cabinetmaking 
and  other  allied  arts  and  the  making  of  tine  furniture  as  a  trade  in  the 
Philippines,  to  carry  on  in  a  limited  way  the  linishing  of  furniture  and 
manufactured  articles  of  wood  and  to  make  a  reasonable  charge  there- 
for, depositing  and  accounting  for  the  receipts  from  this  source  in  the 
usual  way.  It  is  hoped  that  by  this  means  valuable  practical  demon- 
strations of  the  utility  of  many  of  our  more  important  woods  in  cabi- 
netmaking may  be  made. 

VISIT   OF   THE    CHIEF   OF   THE    UNITED    STATES    BUREAU   OF   FORESTRY. 

A  valuable  stimulus  was  given  to  the  forest  service  of  the  Philip- 
pines by  the  visit  of  Mr.  Gifford  Pinchot,  Chief  of  the  United  States 
Bureau  of  Forestry,  who  arrived  in  Manila  late  in  October,  1902. 
Mr.  Pinchot,  at  the  request  of  the  insular  government,  submitted  a 
report  on  forest  conditions  and  the  forest  service,  after  a  rapid  but 
thorough  inspection  of  both,  during  a  trip  lasting  somewhat  more  than 
six  weeks.  On  his  return  journey  he  drafted,  with  the  assistance  of 
the  chief  of  the  forestry  bureau,  a  series  of  letters  full  of  valuable 
suggestions  for  presentation  to  the  Commission,  covering  such  subjects 
as  organization  of  the  forestry  bureau,  Philippine  forest  school, 
Philippine  forest  exhibit,  forest  policy,  conduct  of  forest  business,  and 
steamer  for  making  inspections. 


OF   THE    PHILIPPINE    ISLANDS,   1900-1903.  575 

Ml".  Pinchot  was  also  requested  to  suggest  amendments  to  the  exist- 
ing forest  regulations,  which  are  embodied  in  a  militar}'  order  that  has 
never  been  interfered  with  by  the  civil  government.  Aided  bj-  the 
chief  of  the  bureau,  he  elaborated  a  proposed  forest  act,  now  before 
the  Commission  for  consideration,  which  seeks  to  insure  that  "the 
public  forests  and  forest  reserves  of  the  Philippine  Islands  shall  be 
held  and  administered  for  the  protection  of  the  public  interests,  the 
utility  and  safety  of  the  forests,  and  the  perpetuation  thereof  in  pro- 
ductive condition  by  wise. use."' 

This  act  contains  a  provision  for  granting  licenses  for  live  or  ten 
year  periods,  as  well  as  for  the  present  one-3-ear  period.  It  is  hoped 
that  the  possibility  of  securing  licenses  for  longer  terms  will  act  as  an 
inducement  for  logging  and  milling  companies  to  operate  on  a  large 
scale.  Provision  is  also  made  for  reduction  of  government  charges 
on  forest  products  in  provinces  distant  from  Manila  where  large  stands 
of  timber  exist,  as  well  as  in  provinces  where  foresters  select  and 
mark  all  timber  for  felling. 

DIVISION   OF   INSPECTION. 

The  efficiency  of  the  division  of  inspection  has  been  greatly  increased 
by  substantial  additions  to  the  force.  On  September  1,  1902,  there 
were  employed  5  assistant  inspectors,  10  assistant  foresters,  and  52 
rangers.  The  present  authorized  force  consists  of  -1  inspectors,  20 
assistant  inspectors,  and  128  rangers.  Difficulty  is  encountered  in 
securing  men  for  these  places  as  rapidly  as  they  are  needed.  The 
number  of  forest  stations  has  been  increased  within  the  year  from  42 
to  55. 

DIVISION   OF   FOEEST   MANAGEMENT. 

The  division  of  forest  management  has  within  the  past  year  exam- 
ined forest  tracts  in  northern  Bataan  and  southern  Zambales,  on  the 
Pacific  coast  of  Tayabas,  the  southern  coast  of  Tayabas,  in  the  vicinit}- 
of  the  Gulf  of  Ragay,  Camarines  Norte,  and  in  Masbate,  Mindoro,  and 
the  province  of  Batangas,  in  order  to  secure  data  for  the  intelligent 
granting  of  timber  licenses.  The  investigation  has  in  each  case  cov- 
ered the  species  present,  their  relative  abundance,  their  power  of 
reproduction  in  virgin  forest  and  where  clearings  have  been  made,  the 
lumbering  methods  in  vogue,  the  accessibility  of  the  timber,  labor 
conditions,  and  current  price  of  timber. 

This  work  is  now  carried  on  by  six  foresters  and  two  assistant 
inspectors.  As  a  rule,  no  two  concessioners  are  allowed  to  operate 
on  the  same  tract  of  land.  Inspection  is  thus  made  easier,  and  the 
licensee  has  the  exclusive  benefit  of  any  logging  trails  or  other  improve- 
ments made  by  him.  When  licenses  have  been  issued,  the  forester 
marks  timber  for  cutting  in  the  regions  covered  b}^  the  several  licenses. 
A  forester  can  mark  5,000  to  (5,000  cubic  feet  per  da}',  but  this  amount 
can  bo  greatly  increased  by  allowing  him  one  or  two  assistants. 

Each  field  party  has  devoted  more  or  less  time  to  the  gathering  of 
material  for  the  Louisiana  Purchase  Exposition.  Particular  care  has 
been  exercised  in  the  marking  of  timber  for  cutting  in  the  vicinity  of 
Baguio,  Benguet,  where  it  is  especially  dcsiral)le  to  cut  onlj^  trees  the 
removal  of  which  will  actually  improve  the  forest,  but  where  the  temp- 
tation to  wholesale  depredations  on  the  part  of  licensees  is  strong, 
owing  to  the  great  demand  for  lumber.     An  investigation  was  also 


576 


"REPORTS    OK    THE    OIVIL    OOVKRNMENT 


made  of  the  forest  reoion  near  the  Giinooon  Kiv^er  in  western  Negros, 
where  the  ehH-tric  company  of  lloilo  is  t)peratino  a  modern  wire  cable 
system  in  the  forest. 

NEED   OF   A   STEAMER  TO   FACILITATE   INSPECTION. 

In  order  to  render  possible  satisfactory  inspection  of  the  manner  in 
which  its  forest  oliicials  scattered  throughout  the  arch ipelaj^'o  perform 
their  duties,  it  is  important  that  a  small  steam  vessel  should  ))e  at  the 
disposal  of  the  forestry'  bunniu.  On  May  1,  10o3,  the  coast-j^uaixl 
cutter  ^fat'induque  was  furnished  the  bureau  for  this  purpose,  but 
after  she  had  made  two  trips  slie  was  assigned  to  other  duty.  Later 
the  launch  Ph'dadeljjh'Ki  was  turned  over  to  the  forestry  bureau.  She 
was  in  need  of  repairs,  but  will  soon  be  ready  for  active  service. 

LICENSES. 

Licenses  are  at  present,  as  a  rule,  granted  for  a  period  of  one  3^ear, 
beginning"  with  Jul}"  1,  and  are  issued  free  of  charge,  the  government 
deriving  its  revenue  from  the  dues  on  the  forest  products  gathered. 
They  are  of  four  kinds,  "timber,"  "firewood,"  "gratuitous,"  and 
"minor  products." 

A  card  index  is  kept  of  all  licenses  and  of  all  persons  violating  for- 
est regulations.  Applications  for  licenses  must  go  through  the  local 
forest  station  for  remark  by  the  local  forest  official,  who  furnishes 
information  relative  to  the  status  of  the  applicant,  his  equipment  for 
logging,  etc. 

Foresters  and  inspectors  have  authority  to  issue  direct  licenses  to 
cut  firewood  and  gratuitous  licenses  for  timber  for  house  building. 
Were  this  not  possible  persons  living  in  the  more  remote  parts  of 
the  archipelago  would  experience  great  difficulty  in  securing  firewood 
and  structural  tiin1)er  which  they  need. 

The  following  licenses  were  granted  during  the  fiscal  year  ending 
June  30,  1903:  Timber,  938;  firewood,  713;  gums  and  resins,  98;  dye- 
wood,  etc.,  53;  charcoal,  43.  Gratuitous  licenses  were  issued  as 
follows:  To  needy  residents,  460;  for  cutting  timber  for  public  Avorks, 
122;  firewood,  5.     Total  licenses,  2,432;  total  gratuitous  licenses,  587. 

Individual  timber  licenses  are  granted  for  10,000  cubic  feet,  and 
company  licenses  for  100,000  cubic  feet.  Thirteen  company  licenses 
were  granted  during  the  fiscal  year  ending  June  30, 1903.  Under  6 of 
these  no  timber  was  cut,  while  under  the  others  timber  was  cut  as 
follows: 


Company. 

Cubic  feet 
cut. 

Company. 

Cubic  feet 
cut. 

Danao  Lumber  Co 

847 
7,615 
14,600 

106,809 

Compafiia  Madera  de  Luzon 

23, 242 

Philippine  Lumberand  Commercial  Co 

31,264 
1,915 

Philippine  Lumber  and  Development 
Co 

Total 

186,352 

FEAR   OF   EXTENSIVE    EXPLOITATION    OF   PHILIPPINE    FORESTS    BY   LUM- 
BER  COMPANIES   GROUNDLESS. 

These  figures  clearly  show  how  groundless  were  the  apprehensions 
of  those  Avho  feared  ruinous  exploitation  of  Philippine  forests  by 
great  lumber  companies.  At  present  timber  is  growing  much  faster 
than  it  can  be  cut,  and  many  of  the  forests  would  be  greatly  improved 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903. 


577 


by  the  S3"stematic  felling  of  the  old  trees  which  have  reached  maturity 
and  willsoon  begin  to  decay  if  not  converted  into  lumber. 

SPECIAL   PRIVILEGES   GRANTED   TO   THE   ARMY. 

To  facilitate  the  operations  of  the  militar}^  authorities  in  the  con- 
struction of  roads,  bridges,  and  army  posts,  and  the  securing  of  poles 
for  repairing  telegraph  lines,  I  authorized  the  foi'estry  bureau  to 
grant  permission  to  cut  gratuitously  such  timbers  of  all  groups  as 
might  be  necessar\'  for  Go'vernment  work  carried  on  In'  army  officers, 
the  report  of  the  timl)er  used  to  be  submitted  b}-  the  officer  in  charge 
of  the  work,  after  cutting,  to  the  chief  of  the  forestry  bureau,  and 
local  rangers  only  to  be  notified  in  advance  of  such  wood  as  is  to  be 
cut;  contractors  supplying  such  wood  to  be  regarded  as  agents  of  the 
officer  in  charge  of  the  work,  and  such  officer  to  be  held  responsible 
that  the  contractor  cuts  onl}^  such  timber  as  he  delivers  to  be  used  for 
the  work  specified. 

WORK   OF   THE   TIMBER-TESTING   LABORATORY. 

1  have  referred  in  previous  reports  to  the  necessity  for  a  compre- 
hensive series  of  tests  to  ascertain  the  properties  of  the  difierent  kinds 
of  timber  produced  in  the  islands.  It  is  unquestionably  true  that 
manj^  valuable  varieties  of  timljer  are  without  market  value  at  the 
present  time  because  their  properties  are  unknown.  In  the  timber- 
testing  laboratory,  which  is  well  equipped,  there  have  been  made  dur- 
ing the  year  128  "complete  tests  covering  80  different  species  of  wood. 
At  present  only  those  woods  are  tested  which  have  been  determined 
botanically.  A  full  explanation  of  the  tests  applied  will  be  found  in 
the  appended  report  of  the  chief  of  the  forestry  bureau. 

A  num))er  of  the  species  of  wood  tested  are  worthy  of  special  notice 
because  of  their  excellence.  Alupag-amo  showed  the  remarkable 
strength  of  15,110  pounds  per  square  inch  when  subjected  to  the 
"compression  endwise"  test.  The  stress  at  elastic  limit  equaled 
17,620  pounds  per  square  inch,  and  strength  at  rupture  equaled  19,700 
pounds  per  square  inch.  Macapali,  a  wood  from  Mindanao,  showed  a 
specific  gravity  of  1.32  and  a  stress  at  elastic  limit  (equal  to  the  stress 
at  rupture)  of  11,. 500  pounds  per  square  inch. 

The  following  table  may  be  of  interest  as  showing  the  relative 
strengths  of  some  of  the  more  important  Philippine  and  American 
woods  under  the  crushing  endwise  test.  The  figures  from  Philippine 
woods  are  the  averages  obtained  from  five  or  more  tests;  those  given 
for  United  States  woods  are  from  United  States  Bureau  of  Forestry 
tests. 

ridlippine  vooda.  American  ivoods. 

Pi^rnut  hickory 10,  900 

M(x-kernnt  hif'kory 10,100 

Butternut  hickorv 9,600 

Pecan  hickory  - -" ^^100 

Cuban  pine 9,  080 

Ijonjrleaf  pine 7,  930 

\V  h  i  t e  oak 8 ,  500 

Texan  oak 8,100 

Water  oak 7,  800 

Whiteash 7,200 

Green  asli 8, 000 


Al 
Bet 


Vlnpag-amo 15, 110 

ietis 11,270 

IJungoii 10,  570 

Molave 10,  460 

Dagat  laya 10,  411 0 

Calaniansanay 10,  .')7() 

DilaJiK  bititpii 9,  780 

Bitanhol 9,670 

Ipil   9,000 

Tindalo 8,800 

Bancoro 8,  4.'}0 

Supa 7,230 

Tucan  cahio 7, 1 70 


578  KEPOHTS    OF    THE    CIVIL    OOVERNMENT 

The  chief  of  (ho  forestry  bureau  estiuiates  tliat  there  are  between 
1,0(U)  and  !,;■)(»(•  tree  species  j'rovvino'  in  the  j)ul)lic  forests  of  the  Phil- 
i])pines,  of  which  about  50  varit>ties  make  up  <S()  percent  of  the  timber 
enlerino-  the  market.  It  is  important  to  k'arn  Avhat  of  the  remaining 
species  are  useful  and  for  what  purposes  they  can  be  used  to  good 
advantage.  To  this  end,  tests  will  bo  systematically  carried  out  in  the 
timber-testing  laboratory. 

WORKSHOP   OF   THE    FORESTRY   BUREAU. 

In  order  to  further  test  the  properties  of  our  unknown  woods,  a 
workshop  has  been  established,  where  specimens  can  be  thoroughly 
seasoned  and  worked  up  into  such  shape  as  to  make  them  marketable. 

The  bureau  has  been  fortunate  in  securing  the  services  of  Mr.  T.  J. 
Pili'ard,  who  is  not  only  a  cabinetmaker,  but  is  also  familiar  with  modern 
wood-working  machinery  and  with  the  chemistry  of  stains.  Shortl}' 
after  his  arrival  in  the  Philippines  a  workshop  40  by  40  feet  was  erected 
near  the  timber-testing  laboratory.  The  force  in  this  shop  at  present 
consists  of  about  50  men,  many  of  whom  are  skilled  Filipino  wood 
carvers,  finishers,  and  carpenters.  These  workmen  are  being  trained 
in  American  methods  and  are  making  good  progress.  The  workshop 
is  now  well  furnished  with  modern  wood-working  machinery. 

The  art  of  properly  polishing  woods  is  at  present  unknown  in  the 
Philippine  Islands,  and  great  difficulty  has  been  experienced  in  pur- 
chasing the  material  needed  for  this  purpose. 

IDENTIFICATION   OF   WOODS   BY   MICROSCOPIC   SECTIONS. 

Much  difficulty  has  heretofore  been  encountered  in  correctly  naming 
even  the  more  important  Filipino  woods  when  inspected  in  the  log,  but 
microscopic  sections  of  woods  superficially  vor}'  similar  show  striking 
difierences  in  structure.  Methods  of  sectioning  which  have  been  suc- 
cessfully used  in  the  United  States  have  proved  impractica])lo,  owing 
to  the  great  hardness  of  many  of  our  w  oods,  but  difficulties  have  gradu- 
ally been  overcome,  and  we  now  have  microphotographs  of  at  least 
three  sections — one  perpendicular  to  the  fiber,  one  parallel  to  the 
medullary  raj^s,  and  one  tangential — of  each  of  -iO  difi'erent  wood 
species,  including  many  of  the  most  important.  A  valuable  means  of 
definitely  determining  wood  species  in  the  log  is  thus  being  provided. 

BOTANICAL   WORK. 

The  work  of  identifying  our  tree  species  is  progressing  steadily. 
Some  1,200  identifications  have  been  made  during  the  past  year,  of 
which  200  were  based  on  leaf  specimens  only.  Duplicates  of  material 
which  could  not  be  identified  in  Manila  have  been  sent  to  specialists  in 
Europe. 

Data  for  a  dictionary  of  the  native  plant  names  of  the  Philippines 
are  at  present  being  compiled.  Such  a  work  is  greatly  needed  by  the 
emplo3'ees  of  the  forestry  bureau,  owing  to  the  complicated  synonomy 
of  the  native  names  for  trees.  Of  the  660  tree  species  enumerated 
in  the  order  which  fixes  the  government  tariff  on  lumber  cut  on  public 
lands,  302  have  been  collected  and  identified  during  the  past  year,  the 
list  of  identified  species  including  nearl}^  all  of  those  known  to  be  of 
special  importance. 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903. 


579 


INVESTIGATION   OF   DYEWOODS. 

An  employee  of  the  bureau  was  detailed  to  investigate  the  dyewoods 
of  the  islands.  He  obtained  more  than  100  varieties,  specimens  of 
which  were  sent  to  the  bureau  of  government  laboratories  for  inves- 
tigation as  to  their  value.  Specimens  from  the  same  collection  will 
also  be  exhibited  at  the  Louisiana  Purchase  Exposition. 

WOKK   ON    THE -FOREST    RESERVATION    IN   BATAAN. 

A  field  party  is  now  on  the  Lamao  River,  in  the  province  of  Bataan, 
preparing  ground  for  a  forest  nursery  and  a  future  forest  school  and 
studying  the  tree  species  of  the  Lamao  watershed,  about  12,000  acres 
in  extent,  reaching  from  the  sea  level  to  an  elevation  of  1,500  feet 
above  the  sea.  A  systematic  study  of  the  300  or  more  tree  species 
found  in  this  area  has  been  inaugurated,  typical  trees  being  selected, 
labeled,  and  mapped,  so  that  they  can  be  readily  identified  in  future. 
Tree  seeds  in  considerable  variety  have  been  collected  and  germinated 
at  Manila.  The  young  plants  will  later  be  transferred  to  nurseries  on 
the  reservation.  The  first  nursery  site  has  been  selected  at  an  eleva- 
tion of  500  feet  above  the  sea.  The  forest  school  will  be  established 
on  this  site,  from  which  a  fairly  good  road  has  been  constructed  to  the 
landing  place.  The  second  nursery  will  be  at  an  elevation  of  1,800  feet. 
Material  for  buildings  is  now  being  secured. 

PRIVATE   WOODLANDS. 

The  number  of  private  woodland  estates  at  present  registered  in  the 
forestry  bureau  is  129,  with  an  aggregate  area  of  106,647  hectares. 
The  largest  of  these  estates,  situated  in  the  provinces  of  Tarlac  and 
Nueva  Ecija,  has  an  extent  of  13,202  hectares. 

AMOUNT  OF   FOREST   PRODUCTS    FROM  PUBLIC   LANDS   IN  1902  AND   1903. 

From  the  following  comparative  table  of  the  quantities  of  forest 
products  taken  from  the  public  lands  of  the  Philippines  during  the 
fiscal  years  ending  June  30,  1902,  and  June  30,  1903,  it  will  be  seen 
that  there  has  been  a  small  increase: 


Timber 

Firewood 

Charcoal 

Dyewoods  (sapan) . . . 
Tan  bark  (easealote) 
Damar  (gum  copal).. 

Gutta-percha 

Rubber  

BreaH,  resins,  etc 

Oils  Panao  (wood  oil) 

Rattan 


Cubic  feet. 

3, 637, 392 

Cm.  meters. 

107, 849 

7, 021 

Pounds. 

2,256,458 

312,164 

1, 082, 235 

373, 331 

282, 996 

113,905 

Liters. 

34, 752 
Pounds. 
20, 685 


1903. 


Ctibie  feet. 

4, 740, 738 

Cu.  meters. 

218, 100 

8,795 

Pounds. 

6, 568, 773 

900, 963 

1,358,172 

609,573 

1,293 

752, 280 

Liters. 

53, 529 

Pounds. 

230, 758 


580  liKTORTS    OK    THK    CIVIL    OOVKRNMENT 

(h-dliiiloiis  licrnscs,  l!)OS. 

Timber cubic  feet. . .  153, 029 

Firoworxl cubic  meters. . .       1, 125 

Fruin  jirirate  estatet^,  1903. 

Timber cubic  feet. . .  353,  759 

FirewtuMl cubic  meters. . .     51,  270 

Charcoal do. ...       9, 304 

IMPORTS    AND    EX  TOUTS    OF    FOUEST    PRODUCTS. 

There  were  imported  into  the  Philippine  Islands  during  the  fiscal 
year  ending- June  30,  1903,  113,483  cubic  feet  of  timber  on  commercial 
liners;  6,841,207  board  feet,  free  entry  for  Government  use,  and 
4,746  tons  of  timber,  free  entry  for  Government  use.  There  were 
exported  87,000  feet,  board  measure. 

EXPENSES  OF  FORESTRY  BUREAU. 

During  the  fiscal  year  ending  June  30,  1902,  the  expense  of  con- 
ducting the  forestry  bureau  was  $61,967.25,  United  States  currency, 
and  the  revenue  collected  amounted  to  $348,073.08  Mexican.  During 
the  fiscal  year  ending  June  30,  1903,  the  operating  expenses  amounted 
to  $96,202.36,  United  States  currency,  and  the  revenue  collected  to 
$527,414.85  Mexican. 

We  may  look  forward  with  confidence  to  a  steady  increase  in  the 
revenues  derived  from  forest  products,  and  at  the  same  time  to  actual 
improvement  in  the  forest  areas  where  active  lumbering  operations 
are  carried  on. 

For  further  information  with  reference  to  the  work  of  the  forestry 
bureau,  and  for  the  recommendations  of  Mr.  Gilford  Pinchot,  Chief 
of  the  Forestry  Bureau  of  the  United  States,  reference  is  made  to  the 
second  annual  report  of  the  chief  of  the  forestry  bureau,  which  is 
appended  hereto  and  marked  Appendix  E. 

THE  MINING  BUREAU. 

During  the  past  year  the  work  of  getting  the  Spanish  mining  records 
so  arranged  and  indexed  as  to  make  them  thoroughly  accessible  has 
been  practically  completed.  This  difficult  undertaking  has  been  car- 
ried out  in  a  way  which  reflects  the  greatest  credit  on  the  chief  of  the 
mining  bureau  and  his  associates.  The  records,  which  were  originally 
in  seemingly  hopeless  confusion,  have  been  made  so  accessible  that  any 
desired  document  can  be  found  immediately. 

The  chief  of  the  mining  bureau,  who  was  absent  on  leave  at  the  time 
of  my  last  annual  report,  did  not  return  to  Manila  until  January  26, 
1903,  while  Mr.  McCaskey,  the  assistant  chief ,  left  on  leave  of  absence 
on  May  1,  1903,  and  has  not  yet  returned.  The  bureau  has,  therefore, 
been  short-handed  throughout  the  greater  part  of  the  year. 

Bulletin  No.  3,  entitled  "Report  on  a  Geological  Keconnoissance  of 
the  Iron  Region  of  Angat,  Bulacan,"  has  gone  through  the  press  and 
has  been  distributed.  It  contains  a  large  amount  of  practical  infor- 
mation of  value  to  prospective  miners  or  investors,  and  it  is  hoped 
that  its  publication  may  stimulate  the  development  of  the  important 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  581 

deposits  of  iron  ore  at  Angat,  especial!}'  as  the  assistant  cliief  of  the 
bureau  has  now  demonstrated  that  there  are  several  coals  produced  in 
the  Philippine  Islands  which  will  coke. 

REORGANIZATION  OF   THE    MINING   BUREAU   TO    FACILITATE    FIELD  WORK 

RECOMMENDED. 

In  view  of  the  fact  that  the  records  of  the  mining  bureau  are  now 
in  satisfactory  condition,  and  that  the  administrative  work  with  refer- 
ence to  titles  to  mining-  claims  has  l^een  transferred  to  the  bureau  of 
public  lands,  both  the  chief  and  the  assistant  chief  of  the  mining 
bureau  stronglj^  recommend  that  the  bureau  be  reorganized  in  such  a 
way  as  to  permit  of  its  effectively  carrying  out  reconnoisances  of  the 
important  mineral  regions  of  the  Philippines,  in  order  that  accurate 
information  of  value  to  the  prospector,  the  miner,  and  the  capitalist 
may  be  made  available  and  the  development  of  the  mining  industry 
may  be  stimulated.  I  heartily  concur  with  these  gentlemen  as  to  the 
wisdom  of  the  proposed  reorganization. 

ACTIVE    MINING   OPERATIONS   BEGUN. 

With  order  reestablished  throughout  the  archipelago  active  mining 
operations  have  been  begun  at  several  different  points  with  good  hope 
of  success.  Promising  coal  mines  are  being  developed  on  the  island 
of  Bataan,  both  by  private  capital  and  by  the  United  States  Govern- 
ment. Active  work  has  also  been  done  on  the  gold  deposits  of  Mam- 
bulao  and  Paracale,  in  Ambos  Camarines,  and  upon  several  gold-mining 
claims  in  the  province  of  Benguet.  The  mining  bureau  has  stimu- 
lated much  of  this  work  by  investigations  and  reports  which  showed 
that  it  might  be  undertaken  with  good  hope  of  substantial  pecuniary 
returns.  There  is  everj^  indication  that  we  are  entering  upon  an  era 
of  active  development  of  the  mineral  resources  of  the  archipelago, 
which  should  bring  prosperity  to  a  number  of  regions  the  inhabitants 
of  which  are  at  present  poor  and  obtain  a  livelihood  with  comparative 
difficulty. 

It  is  gratifying  to  note  the  statement  in  the  report  of  the  chief  of 
the  mining  bureau  that  in  spite  of  the  fact  that  the  number  of  pros- 
pectors has  greatly  diminished  during  the  past  year  new  discoveries 
and  locations  have  been  more  numerous  than  in  any  previous  3'ear, 
and  the  amount  of  development  work  done  has  also  been  much  larger. 

MINERALOGICAL   MAP   OF   THE    PHILIPPINES. 

The  mining  bureau  has  completed  a  map  of  the  archipelago,  show- 
ing the  mines  and  mineral  deposits  of  proven  value.  It  should  l^e  of 
assistance  to  all  persons  interested  in  the  mineral  wealth  of  the  Philip- 
pines. 

RECOMMENDATIONS   OF   CHIEF   OF   MINING    BUREAU. 

Among  the  recommendations  with  which  the  chief  of  the  mining 
bureau  closes  his  rei)ort  is  one  that  the  pi'csent  mining  law  be  so 
amended  as  to  enable  more  than  one  claim  to  l)e  located  ])y  the  same 
individnal  or  association  of  individuals  upon  a  lode  or  deposit.  1  very 
heartily  indorse  this  r(>conimendation. 


582  REPOKTS    OF    THE    CTVIL    OOVERNMENT 

As  devolopnicnt  ])ioo-ro8,sos  it  becomes  luoro  and  moro  evident  that 
a  iiunibcr  of  the  more  vahuil)le  o-old  deposits  of  the  Philippines  will 
prove  to  be  of  low  urade.  Their  develoj^nient  will  involve  the  use  of 
expensive  plants,  and  if  the  necessary  capital  is  to  be  secured  it  must 
be  possible  to  obtain  title  to  larger  tracts  than  can  be  located  as  single 
claims  under  the  present  law. 

The  chief  of  the  bureau  also  recommends  that  authority  1)0  given  for 
the  free  use  of  timber  required  in  mining,  subject  to  reasonable  regu- 
lations and  restrictions  to  prevent  waste.  I  am  unable  to  see  why 
there  is  any  moro  reason  for  granting  free  use  of  timber  required  in 
mining  than  for  making  a  similar  grant  in  the  case  of  timber  required 
for  railroad  or  house  construction,  and  disapprove  this  recommen- 
dation. 

FIELD    TRIPS. 

The  assistant  chief  of  the  bureau,  having  acted  for  the  chief  of  the 
bureau  during  the  absence  of  the  latter  official,  has  rendered  a  separate 
report  for  the  period  of  his  incumbency.  In  addition  to  carrying  on 
the  extensive  correspondence  which  resulted  from  the  taking  effect  of 
the  act  of  Congress  of  July  1,  1902,  the  assistant  chief  performed  his 
regular  duties  as  mining  engineer  and  conducted  field  trips  to  the 
Calamianes,  Cuj^os,  and  Paragua  groups  of  islands  and  to  the  coral 
island  of  Apo,  west  of  Mindoro,  during  which  there  was  secured  a  con- 
siderable amount  of  interesting  information  relative  to  the  geology  of 
these  little-known  regions,  which  has  been  embodied  in  a  report. 

ADDITIONS   TO   COLLECTIONS. 

Substantial  additions  have  been  made  to  the  geological  and  mineral- 
ogical  collections  of  the  bureau  during  the  past  year.  The  present 
building  does  not  afford  adequate  facilities  for  storing  these  collec- 
tions, much  less  for  exhibiting  them.  I  am  of  the  opinion  that  a  wing 
should  in  the  near  future  be  added  to  the  new  Iniilding  of  the  bureau 
of  government  laboratories  sufficient  in  size  to  afford  adequate  accom- 
modations for  the  mining-  bureau  and  the  forestiy  bureau.  1  have 
requested  the  insular  architect  to  prepare  plans  for,  and  estimate  the 
cost  of,  such  an  addition  to  this  building. 

PLAN   FOR   EXHIBIT   AT   THE   LOUISIANA   PURCHASE    EXPOSITION. 

The  assistant  chief  of  the  bureau  has  prepared  plans  for  a  mineral 
exhibit  at  the  Louisiana  Purchase  Exposition.  These  plans  have  been 
adopted  by  the  exposition  board,  and,  so  far  as  practicable,  have  been 
carried  out  by  collectors  emplo^^ed  by  that  body. 

For  further  information  relatiAO  to  the  work  of  the  mining  bureau 
during  the  past  year,  reference  is  made  to  the  annual  report  of  the 
chief  of  the  l)ureau  (Appendix  F)  and  to  the  report  of  the  assistant 
chief  of  the  bureau  which  accompanies  it. 

BUREAU  OF  GOVERNMENT  LABORATORIES. 

The  Government  has  been  fortunate  in  retaining  throughout  the 
year  the  services  of  Dr.  Paul  C.  Freer,  superintendent  of  government 
laboratories,  under  whose  able  administration  the  bureau  has  been 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  583 

brought  to  a  high  degree  of  efficienc}'  and  usefulness.  Further  exten- 
sion of  leave  was  at  lirst  refused  him  by  the  authorities  of  the  Univer- 
sity of  Michigan,  but  upon  the  request  of  the  Secretary  of  \Yar  was 
finalh"  granted.  He  has  continued  wiseW  to  direct  the  somewhat  com- 
plicated affairs  of  his  bureau  and  to  render  valuable  service  as  a  mem- 
ber of  the  insular  board  of  health.  Permission  was  granted  him  to 
return  to  the  United  States  in  order  to  secure  emploj-ees  for  the  bureau 
and  attend  to  private  affairs,  but  at  the  last  moment  an  emergency 
arose  in  connection  with  th.e  purchase  of  cattle  for  the  Government  at 
Shanghai,  and  he  was  sent  there  to  investigate  and  report. 

The  Commission  has  shown  its  appreciation  of  his  services  in  a 
substantial  way  by  increasing  his  salary  to  $6,000. 

OPENING   OF   LABORATORIES   TO   THE    PUBLIC. 

The  bureau  of  government  laboratories  has  rendered  very  important 
service  not  only  to  the  insular  goverufient  but  to  the  public  at  large 
during  the  past  year.  While  the  law  under  which  this  bureau  was 
organized  provided  that  all  biological  and  chemical  work  for  the  insu- 
lar government  should  be  performed  by  it,  there  was  originally  no 
thought  of  its  doing  work  for  private  persons,  nor  was  there  any 
provision  of  law  under  which  such  work  could  be  done. 

It  eventually  became  evident,  however,  that  it  was  desirable  to  place 
many  of  the  facilities  afforded  b}-  the  bureau  at  the  disposal  of  the 
general  public.  There  was  no  other  place  where  adequate  means  existed 
for  making  diagnoses  which  involved  the  use  of  high-power  micro- 
scopes or  necessitated  pathological  investigations,  nor  where  chemical 
work  of  the  simplest  sort,  other  than  mineral  assa3^s,  could  be  per- 
formed. Moreover,  many  of  the  assa3\s  made  by  private  persons 
proved  so  unreliable  as  to  suggest  deliberate  intention  to  deceive  on 
the  part  of  those  who  made  them.  It  was  felt  that  the  development 
of  the  mineral  resources  of  the  islands  would  be  stimulated  if  it  were 
possible  for  miners,  prospectors,  and  other  interested  persons  to  secure 
reliable  government  assa3^s,  and  that  no  harm  could  come  from  placing 
the  facilities  for  chemical  and  pathological  work,  which  the  labora- 
tories afforded,  at  the  disposal  of  the  general  public.  Legislation  was 
according!}'  adopted  authorizing  the  superintendent  of  government 
laboratories  to  prepare,  subject  to  nn^  approval,  a  list  of  fees  to  be 
charged  for  different  kinds  of  work.  The  list  was  prepared  and  pulv 
lished,  and  a  steadily  increasing  amount  of  work  for  private  persons 
is  now  being  done. 

The  policy  which  has  been  inaugurated,  wnth  reference  to  the  chem- 
ical and  biological  laboratories,  has  not  yet  been  extended  to  the  scrum 
la})oratory;  in  fact,  it  has  not  yet  1)cen  feasible  to  so  extend  it,  as  the 
products  of  this  lal)oratory  have  ))een  required  bv  the  govcrmnent  as 
rapidly  as  they  could  1)C  produced.  When  the  plant  at  present  con- 
templated has  been  established  and  manufacture  is  well  under  way,  a 
slight  additional  cost  will  enable  the  laboratory  to  supply  soi-ums  and 
prophylactics  to  outside  persons,  thereb}'  making  it  possibh^  for  them 
to  obtain  products  of  great  value  which  the\^  are  now  wholly  unable 
to  secure.  A  revenue  sufficient  to  support  the  serum  laborator}'  might 
ultimately  be  derived  from  this  source.  A  small  beginning  has  already 
been  niade  In'  the  authorization  of  the  sale  of  antirinderpestic  serum 
to  private  persons  in  Shanghai.     1  am  of  the  opinion  that,  in  the 


584  KEr(1RTS    OK    TTIF,    CIVIL    GOVERNMENT 

interost  of  the  pul)ru'  and  the  liil)oratorv  as  well,  this  ])olicy  should  be 
eoiitiiuuHl  and  extended  to  other  prodiiets  of  tlu^  laboratory  as  the 
supply  may  from  time  to  time  warrant. 

BUILDINGS. 

The  new  building  for  the  bureau,  for  which  an  excellent  site  was 
secured  on  the  exposition  grounds,  is  approaching  completion  and 
should  ])c  ready  for  occupancy  about  fluly  1,  1904.  Meanwhile  the 
ra[)idly  increasing  work  of  the  )>ureau  has  necessitated  the  renting  and 
e(|ui|)ment  of  a  large  dwelling  house,  where  the  biological  work  is  now 
performed  and  tlie  library  stoi-ed.  The  original  building  is  now 
entirely  given  up  to  chemical  work. 

THE    SERUM   LABORATORY. 

The  most  important  change  in  the  bureau  during  the  year  was  the 
transfer  to  it  on  January  30,  1903,  of  the  serum  lal)oratory  of  the 
board  of  health,  tlie  incorpoi'ation  of  the  former  vaccine  institute  with 
the  serum  laboratory,  and  the  appointment  of  Dr.  James  W.  Jobling  as 
director  of  the  new  laboratory  thus  established.  Doctor  Jobling,  with 
his  customary  energy,  at  once  began  to  push  the  work  of  obtaining  a 
herd  of  serum  animals  free  from  all  disease.  He  quarantined  all  new 
animals  admitted  to  the  laboratory,  improved  the  v^accine  virus  l)v  a 
fresh  importation  from  Japan,  and  obtained  a  regular  and  sufficient 
suppl}"  of  small  animals  for  purposes  of  expei-imentation.  Under  his 
al)lo  management  the  foot-and-mouth  disease,  which  has  been  a  source 
of  endless  annoj^ance  in  connection  with  the  serum  work,  disappeared. 
Systematic  care  and  proper  feeding  of  cattle  produced  consiDicuous 
improvement  in  their  condition,  and  since  the  1st  of  February  there 
has  never  been  any  lack  of  excellent  vaccine  virus  and  rinderpest 
serum.  The  herd  of  immune  cattle  has  been  increased  to  about  80 
animals,  and  new  animals  arc  added  as  opportunity  offers.  Nine  hun- 
dred thousand  doses  of  vaccine  virus  have  been  prepared  during  the 
past  six  months,  and  some  '1,000  cubic  centimeters  of  Shiga  proph}^- 
lactic  serum  for  use  in  immunizing  against  bubonic  plague  have  been 
prepared  and  delivered  to  the  insular  board  of  health. 

The  work  of  preparing  antiseptic  serum,  the  need  of  which  has  long 
been  recognized,  has  also  been  inaugurated,  and  the  laboratory  now 
has  on  hand  5  horses  which  are  rapidly  being  brought  to  a  point  where 
thej^  will  yield  a  serum  of  good  efficiency.  Eight  hundred  cubic  centi- 
meters have  alread}"  been  prepared. 

The  work  of  the  serum  laljoratory  has  been  carried  on  in  the  face  of 
very  serious  practical  difliculties,  which  it  would  be  tedious  to  enumer- 
ate. Great  credit  is  due  to  Doctor  Jobling  and  his  sul)ordinates  for 
the  unvarying  success  with  which  obstacles  have  been  overcome. 

The  work  of  caring  for  animals  imported  by  the  government  while 
at  Manila  prioi-  to  distril)ution,  which  was  taken  from  the  bureau  of 
agriculture  and  given  to  the  serum  laboratory,  has  been  very  satisfac- 
toril}^  performed  by  laboratory  employees. 

The  work  of  inoculating  cattle  in  the  provinces  against  rinderpest, 
wherever  the  disease  has  appeared,  has  })een  considered  of  the  first 
importance,  and  every  available  man  has  been  made  use  of  for  this 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  585 

purpose,  including-,  as  previou.sly  .stated,  cmplo3^ees  of  the  serum  labo- 
ratoiy,  of  the  insuhir  ])oard  of  health,  and  of  the  bureau  of  agriculture. 

The  .scientilic  force  of  the  serum  laboratory  has  been  insufficient  for 
carrying  on  so  large  a  volume  of  work,  especially  in  view  of  the  fact 
that  Dr.  John  G.  Slee,  a  skilled  veterinarian  in  the  employ  of  the  insular 
board  of  health,  \vho  had  been  practicallj^  detailed  to  the  serum  labo- 
ratory, was  of  necessity  sent  to  Shanghai  to  meet  an  cmergenc}'  which 
arose' there  in  connection  with  the  purchase  of  carabaos  for  the  insular 
government,  and  has  remained  there  on  duty. 

The  carrj^ing  on  of  systematic  investigations  would  still  further 
increase  the  efficiency  of  the  laboratory  and  decrease  the  cost  of  man- 
ufacturing its  products.  Thus  far  the  energies  of  its  employees  have 
of  necessity  been  almost  exclusively  directed  to  routine  work,  but  a 
materially  increased  force  has  been  authorized.  When  the  newl}^  cre- 
ated positions  have  been  tilled,  the  routine  work  can  be  carried  on  to 
much  better  advantage  than  at  present,  and  opportunity  will  also  be 
afforded  for  the  carrying  on  of  much-needed  research. 

The  transfer  of  the  serum  laboratory  to  the  bureau  of  government 
laboratories  and  the  incorporation  with  it  of  the  vaccine  institute  has 
resulted  in  economy  of  administration  and  improvement  in  the  products 
manufactured,  notably  in  the  case  of  vaccine  virus.  The  laboratory 
has  been  extraordina^rily  successful  in  the  manufacture  find  use  of 
antirinderpestic  serum,  securing,  by  the  simultaneous  inoculation 
method,  almost  complete  inmuuiity  against  rinderpest  and  losing  a 
very  low  percentage  of  the  animals  inoculated.  It  is  doubtful  whether 
so  great  success  in  immunizing  against  rinderpest  has  ever  been 
obtained  elsewhere,  and  the  manufacture  of  the  necessary  serum  has 
made  it  possible  for  the  government  to  take  up  vigorously  the  work  of 
immunizing  all  horned  cattle  remaining  in  the  islands  and  all  that  are 
imported,  and  to  inaugurate  upon  a  large  scale  the  restocking  of  the 
islands  with  carabao.  As  the  rehabilitation  of  agriculture  is  absolutely 
dependent  upon  the  provision  of  an  adequate  supply  of  draft  animals, 
the  importance  of  this  result  will  be  readily  appreciated. 

The  facilities  on  the  San  Lazaro  grounds  for  the  proper  care  of  serum 
animals  and  of  other  valuable  animals  during  inoculation  have  been 
greatly  improved  and  increased,  Init  all  changes  there  are  necessarily 
of  a  temporary  nature,  in  view  of  the  fact  tliat  the  insular  board  of 
health  will  ultimately  need  all  of  the  ground  at  present  occupied  by 
the  serum  laboratory  for  contagious-disease  hospitals.  The  distance 
of  the  San  Lazaro  estate  from  the  site  of  the  new  laboratory  ))uilding 
is,  in  any  event,  such  as  to  necessitate  the  transfer  of  the  serum  work  to 
some  other  conveniently  situated  place  at  the  time  the  new  laboratory 
building  is  occupied.  A  suitable  site  has  been  secured  from  the  muni- 
cipal })oard  of  Manila  in  the  district  of  Paco.  When  the  new  Indlding 
is  ready  for  occupancy  the  serum  Avork  will  be  ti'ansferred  to  it  and  to 
this  plot  of  ground."  Vaccine  work,  and  all  of  the  work  connected 
with  the  preparation  of  serums  inv^olving  the  use  of  horses  or  small 
animals  only,  will  be  conducted  at  the  main  laboratoiy  ])uilding,  and, 
in  fact,  scrum  of  every  sort  will  be  prepared,  packed,  and  shipped 
there,  but  the  stalls  for  imnume  animals  from  which  antirinderpestic 
sorurti  is  made,  the  operating  room  for  bleeding  them,  a  barn  for  feed 
and  supplies,  and  a  building  for  the  watchman,  which  will  also  afford 
suitabk^  facilities  for  caring  for  fi-esh  blood,  will  be  established  on  the 
Paco  site. 


580  REPORTS    OF    THE    CIVIL    OOVERNMENT 

LIBRARY. 

Tho  workino-  library  has  been  con.sidora])ly  increased  dnring"  the  past 
3'ear.  A  list  of  the  more  important  publications  which  are,  or  soon 
will  be,  on  hand  is  contained  in  the  annual  report  of  the  superintendent 
of  <;overnment  laboratories.  There  is  i^'reat  need  of  additional  litera- 
ture covering  the  field  of  industrial  chemistry,  especially  in  view  of 
the  fact  that  tho  chemical  laborator}'  has  been  opened  to  the  public. 
Adequate  literature  on  veterinary  medicine  and  surgery  is  also  impera- 
tively needed,  veterinary  work  having  sprung  into  great  prominence 
on  account  of  the  large  importations  of  cattle  by  the  government  and 
the  necessity  for  caring  for  animals  injured  on  the  voyage,  and  for 
safeguarding  the  islands  against  the  introduction  of  new  cattle  diseases 
by  the  animals  imported.  Hemorrhagic  septicajinia  has  already  been 
introduced  from  Hongkong,  as  previously  stated.  Fortunately  the 
disease  was  promptly  recognizee!,  and  precautions  were  taken  which 
proved  efi'ective  in  preventing  its  spread.  Its  occurrence  serves  to 
emphasize  the  importance  of  having  on  hand  necessary  literature  so 
that  other  new  diseases  may  be  dealt  with  as  promptly  and  efl'ectively. 

NEW   APPARATUS   AND   SUPPLIES. 

Additional  apparatus  and  supplies  have  been  received  as  rapidly  as 
the}'  could  be  installed,  or  used.  Some  large  apparatus,  including  a 
vacuum  distilling  plant,  extractors,  and  other  appliances  intended  for 
use  in  working  up  essential  oils,  rubber,  gutta-percha,  etc.,  can  not  be 
installed  until  the  new  building  is  available,  and  the  ordering  of  them 
has  therefore  been  delayed. 

ASSAY   WORK. 

The  assay  work  of  the  bureau  has  necessarily  thus  far  been  done  in 
the  building  of  the  mining  bureau  with  rather  insufficieet  facilities, 
but  an  adequate  outfit  has  been  ordered  and  will  arrive  quite  as  soon 
as  space  for  its  installation  is  available. 

GAS   SUPPLY. 

The  machine  for  furnishing  a  supply  of  gas  ])y  the  destructive  dis- 
tillation of  cocoanut  oil  in  a  red-hot  iron  retort  has  worked  so  satisfac- 
torily that  the  same  kind  of  apparatus,  with  a  larger  tank  capacity, 
will  be  used  for  supplying  gas  to  the  new  building. 

CHARACTER   OF   CHEMICAL   WORK    DONE. 

The  chemical  work  during  the  3^ear  has  involved  analyses  of  sus- 
pected counterfeit  silver  coins;  examinations  for  poison,  some  of  which 
were  made  for  chemical-legal  purposes;  investigations  of  suspected 
blood  stains  in  murder  cases;  analyses  of  mineral  and  other  waters, 
soils,  coals,  paints,  and  alloys.  A  large  amount  of  assay  and  analytical 
work  has  been  done  for  the  exposition  board  in  coimection  with  exhibits 
to  be  made  at  the  Louisiana  Purchase  Exposition.  The  number  of 
analyses  made  is  more  than  double  that  of  last  year. 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  587 

Dr.  P.  L,  Sherman  was  sent  on  a  second  expedition  to  the  southern 
islands  to  gather  material  for  completing-  his  work  on  ruliber  and 
gutta-percha,  and  has  also  made  some  explorations  in  the  island  of 
Mindoro,  which  resulted  in  the  discovery  of  rubber,  apparently  of 
superior  quality.  A  complete  bulletin  on  the  subject  of  rubber  and 
gutta-percha  in  the  Philippines  will  be  issued  in  time  for  use  at  the 
Louisiana  Purchase  Exposition. 

The  superintendent  of  government  laboratories,  with  Doctor  Sherman 
and  others,  made  a  trip  to.  Paragua,  hoping  to  find  there  Dichopsis 
gutta,  from  which  the  best  gutta-percha  is  produced.  A  thorough 
exploration  was  made,  but  neither  gutta-percha  trees  nor  rub))er  vines 
were  found.  Gum  dammar  was,  however,  found  in  abundance,  and  a 
considerable  quantity  brought  to  Manila  for  study  and  for  exhibition 
purposes. 

Systematic  work  upon  gums  and  resins  will  be  continued,  and 
promises  important  results. 

A  large  amount  of  work  has  already  been  done  by  Mr.  Bliss  on  the 
so-called  "  brea,"  which,  it  proves,  comes  from  a  number  of  different 
trees,  and  from  which  various  essential  oils  have  already  been  derived. 

Two  samples  of  surface  mineral  oils  have  been  brought  to  the  labo- 
ratory, one  of  which  proved  to  be  of  such  a  nature  as  to  warrant  recom- 
mendation for  further  investigation  and  development. 

THE   BIOLOGICAL    LABORATORY. 

DIAGNOSTIC    WORK. 

The  diagnostic  work  performed  in  the  biological  laboratory  has  also 
steadily  increased.  Some  7,000  diagnoses  have  been  made  during  the 
past  six  months,  and,  in  addition,  thousands  of  rats  and  mice  have  been 
examined  for  plague.  Four  medical-legal  cases  have  been  handled, 
500  tissues  have  been  prepared  for  microscopic  examination,  and  a 
large  number  of  post-mortems  have  been  held.  As  in  the  chemical 
and  serum  laboi-atories,  time  which  should  have  been  available  for 
important  research  work  has  been  greatly  encroached  upon  b}^  the 
very  large  amount  of  routine  work  necessarily  performed,  so  that 
important  investigations  have  been  delayed  or  postponed.  It  is  hoped 
that  this  difficulty  may  bo  met  here,  as  in  the  other  laboratories,  in  the 
near  future  through  tlie  augmentation  of  the  working  force,  for  which 
provision  has  been  made. 

ORIGINAL    INVESTIGATION. 

In  spite  of  the  pressure  of  routine  work,  Doctor  Musgrave,  assisted 
by  Messrs.  Clegg  and  Williamson,  has  carried  out  an  important  piece 
of  mvestigation  on  surra.  His  results,  which  have  in  part  been  puli- 
lished  in  a  preliminary  bulletin,  appear  in  the  appended  report  of  the 
superintendent  of  govcinimMit  laboi-atdries.  They  pi'ovide  us  with 
adequate  information  on  which  to  base  a  quarantine  law  to  prevent  the 
introduction  of  fui'ther  cases  of  this  disease,  and  make  plain  the  meas- 
ures to  whi(h  we  nuist  resort  in  order  to  destroy  the  widespread  infec- 
tion which  now  c^.xists.  The  loss  of  horses  fronfsurra  has  already  been 
enormous,  and  energetic  measures  for  its  repression  should  at  once  be 
inaugurated  along  the  lines  suggested  by  Doctor  Musgrave. 


588  REPORTS    OF    THE    CIVIL    GOVERNMENT 


ACTINc;    DIUI'XTOR    AI'I'OINTEIX 


Doctor  Miisoravc  served  as  actino-  director  of  tlic  ))iolojyical  labora- 
tory from  December  15,  1902,  to  July  15,  1908,  during  the  a})scnce  of 
the  director,  and  very  ciKciently  performed  the  duties  of  this  office. 
The  director,  Doctor  Strong,  was  granted  a  special  leave  of  absence 
by  the  Commission  in  order  to  go  to  P^urope  for  study.  He  visited 
the  London  School  of  Tropical  Medicine;  the  German  School  of  Trop- 
ical Medicine,  at  Ham))urg;  the  Pasteur  Institute,  at  Paris,  and  the 
government  civil  hospitals  at  Port  Said  and  Colom])o,  Ceylon,  paying 
especial  attention  to  recent  advances  in  laboratory  methods,  technique, 
and  apparatus,  and  ol)taining  information  with  reference  to  improved 
methods  of  dealing  with  tropical  diseases. 

At  Berlin,  having  obtained  admission  to  the  Konigl.  Institut  fiir 
Infektionskrankheiten,  he  took  up  special  work  in  imnuinity  in  the 
department  of  Professor  Wassermann,  and  as  a  residt  produced  what 
he  believes  to  be  a  practicable  cholera  vaccine.  Opportunity  has  not 
yet  presented  itself  to  give  this  vaccine  a  practical  test  in  the 
Philippines. 


ENTOMOLOGICAL    WORK    liEGUN. 


Entomological  work  has  been  begun  in  the  biological  laboratory  by 
Mr.  Charles  S.  Banks,  who  was  appointed  entomologist  on  December 
9,  1902.  Mr.  Banks's  attention  has  been  directed  to  the  insects  which 
destroy  or  interfere  with  the  growth  of  the  cacao  bush.  His  work, 
which  was  begun  in  the  island  of  Negros,  has  since  been  prosecuted 
in  a  number  of  other  regions".  Pie  has  attempted  to  gather  all  data  on 
insects  aft'ecting  the  roots,  trunk,  leaves,  flowers,  and  fruit  of  cacao 
bushes,  and  has  secured  extensive  collections  of  such  predatory  insects 
and  samples  of  their  work.  His  results,  which  are  briefly  set  forth  in 
Appendix  G,  will  soon  be  pulAished  in  a  bulletin  which  it  is  hoped 
will  be  of  much  practical  value  to  cacao  growers. 

Subsequently  to  the  appointment  of  Mr.  Banks  as  entomologist, 
Mr.  J.  L.  Webb  was  appointed  assistant  entomologist,  and  is  now 
engaged  in  investigations  with  especial  reference  to  insects  harmful  to 
forest  growth  and  to  cut  timber, 

BOTANICAL   WORK. 

The  botanical  work  of  the  government  has  been  transferred  to  the 
bureau  of  government  laboratories  and  a  considera])le  increase  in  the 
force  of  botanical  workers  has  been  authorized,  including  an  addi- 
tional systematic  botanist  and  two  field  collectors.  Satisfactory  prog- 
ress is  being  made  in  the  study  and  identification  of  our  tree  species 
and  of  plants  of  economic  value,  but  the  amount  of  botanical  work 
which  needs  to  be  done  is  enormous,  and  with  any  possible  force  of 
workers  can  not  be  completed  for  many  years. 

SECTIONING    WOODS. 

Very  interesting  and  important  work  has  been  done  in  the  biological 
laboratory  l)y  Mr.  J.  J.  Eaton  of  the  bureau  of  public  instruction, 
who  was  engaged  as  a  temporary  employee  during  his  vacation  to 
prepare  microscopic  sections  of  different  woods  for  the  forestry  bureau. 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  589 

Mucli  difficult}'  was  experienced  in  softening  our  harder  woods  so  that 
they  could  be  successfully  cut  on  the  microtome,  but  this  was  eventu- 
ally' overcome  and  very  satisfactory  results  were  ultimately  attained, 
which  will  be  of  great  importance  to  the  forestry  bureau  as  affording 
a  means  of  conclusive!}'  identifying  timber  samples. 

IVIARINE    BIOLOGICAL    LABORATORY    RECOINIMENDED. 

The  superintendent  of  government  laboratories  in  his  report  recom- 
mends the  establishment  In  the  near  future  of  a  marine  biological 
laboratory  for  investigating  the  marine  life,  which  affords  so  large  a 
part  of  the  food  supply  of  the  islands.  Act  No.  222,  providing  for 
the  organization  of  the  executive  departments,  included  among  the 
bureaus  of  the  department  of  the  interior  a  bureau  of  fisheries,  which 
was  designed  to  inaugurate  and  carry  on  this  special  line  of  work. 
The  title  used  to  designate  the  administrative  body  charged  with  this 
undertaking  is  a  matter  of  comparatively  small  importance.  While 
they  will  involve  extensive  field  operations,  they  will  also  involve  the 
employment  of  laboratory  facilities,  apparatus,  and  workers.  I  am  of 
the  opinion  that  the  argument  of  the  superintendent  of  government 
laboratories  in  favor  of  the  establishment  of  a  marine  biological 
laboratory  is  sound,  and  that  economy  and  efficiency  will  be  gained 
by  affiliating  it  with  the  bureau  of  government  laboratories,  as  has 
already  been  done  with  the  serum  laboratory. 

The  director  of  such  a  laboratory  might  well  be  made  available  for 
appointment  as  superintendent  of  government  laboratories,  and  the 
list  of  possible  candidates  for  this  position  thereby  increased.  This 
would  be  a  distinct  advantage,  for  this  position  necessitates  not  only 
a  high  degree  of  technical  proficiency,  since  its  incumbent  must  be 
a  director  of  one  of  the  laboratories  constituting  the  bureau,  but  a 
high  degree  of  administrative  ability  as  well,  and  carries  with  it  mem- 
bership on  the  board  of  health  for  the  Philippine  Islands.  It  may 
well  happen  that  the  director  of  a  laboratory  is  capable  of  supervising 
very  efficiently  the  work  in  his  special  line,  but  that  he  lacks  the  ex- 
ecutive ability  necessary  to  the  successful  management  of  the  interests 
intrusted  to  the  bureau  of  government  laboratories  as  a  whole,  or  that 
he  has  both  of  these  (jualifications  but  is  without  those  which  would 
especially  fit  him  for  membership  on  the  board  of  health.  Briefly, 
this  position  will  always  be  a  difficult  one  to  fill,  and  in  filling  it 
it  would  be  better  to  have  four  men  to  choose  from  than  three. 

I  am  decidedly  of  the  opinion  that  the  work  of  investigating  those 
marine  organisms  which  afford  food  or  furnish  articles  of  commerce 
should  now  })e  inaugurated  and  pushed,  in  order  that  our  fisheries  may 
be  systematically  and  wisely  developed,  and  that  a  satisfactory  basis 
may  be  afforded  for  necessary  protecti\e  legislation.  The  exhaustion 
of  the  Ceylon  pearl  fisheries  should  teach  us  a  lesson. 

THE  GOVERNMENT  PHOTOGRAPHER. 

During  the  past  year  the  government  photographer  has  been  pro- 
vided with  two  assistants  and  furnished  with  greatly  improved  equip- 
ment. He  has  made  a  laige  series  of  valuable  negatives  which  afford 
a  permanent  photographic  record  of  conditions  at  present  prevailing 
among  many  of  the  non-Christian  tribes  of  the  archipelago  and  of 
23181—04 38 


500  REPORTS    OF    THE    CIVIL    GOVERNMENT 

tlioir  maimov.s  and  custonis.  Ho  lias  also  perl'ornuHl  a  larg'o  amount 
of  Avork  for  the  forestry  bureau,  the  bureau  of  agriculture,  antl  the 
custom-house. 

WORKING    FORCK. 

Although  the  workini;-  force  of  the  chemical  laboratory,  the  bio- 
log-ical  laboratory,  and  the  serum  laboratory  have  been  materially 
increased  during  the  present  year,  the  work  has  increased  more  rap- 
idly than  have  the  workers.  Much  difficulty  has  been  encountered  in 
securing-,  on  short  notice,  suitalile  candidates  for  newly  created  posi- 
tions. This  has  been  due  in  part  to  ignorance  in  the  United  States 
as  to  the  work  of  this  bureau  and  the  facilities  available  for  carrying 
it  on,  and  in  part  to  an  increased  demand  for  chemists,  pathologists, 
and  seriim  men  in  connection  with  industrial  chemical  work  and  city 
health  work  in  the  United  States.  I  have  taken  advantage  of  the 
opportunity  afforded  by  my  return  to  the  United  States  on  leave  to 
visit  the  University  of  California,  Leland  Stanford  University,  the 
University  of  Chicago,  the  University  of  Michigan,  Harvard  Uni- 
versity, the  Massachusetts  Institute  of  Technology,  Coluuibia 
University,  the  University  of  Pennsylvania,  Johns  Hopkins  Uni- 
versity, and  Cornell  University,  and  in  conference  with  professors  of 
chemistry,  pathology,  veterinary  medicine  and  surgery,  and  botany, 
to  inform  them  as  to  the  nature  of  the  work  which  we  are  doing  and 
the  facilities  for  it  which  are,  or  soon  will  be,  available,  and  to  arrange 
with  them  for  securing  a  waiting  list  of  candidates  for  positions  here- 
after created.  It  is  therefore  hoped  that  the  laboratories  may  not  be 
so  short-handed  in  the  future  as  they  have  been  in  the  past. 

I  found  everywhere  the  keenest  interest  among  scientific  men  in  the 
work  of  this  liureau,  and  was  gratified  to  learn  that  when  the  new 
building  is  completed  and  properly  equipped  a  number  of  well-known 
American  investigators  will  be  glad  to  nvnW  themselves  of  the  facilities 
thus  afforded  for  carrying  on  research  work. 

The  superintendent  of  government  laboratories  in  his  annual  report 
calls  attention  to  the  fact  that  in  order  to  obtain  suitably  collected 
material  in  sufficient  quantity  it  has  been  necessary  to  employ  skilled 
employees  of  the  chemical  laboratory  in  the  field.  This  difiiiculty  can 
readily  be  met  by  utilizing  a  very  different  and  less  expensive  class  of 
men  as  collectors. 

REORGANIZATION  OF  THE  BUREAU  NEEDED. 

Recent  experience  in  the  matter  of  promptly  securing  employees  of 
this  bureau  to  meet  the  demands  caused  by  a  rapidly  increasing  volume 
of  work  or  by  the  arising  of  special  emergencies  has  been  such  as  to 
make  plain  the  necessity  for  having  constantly  available  an  adequate 
force  of  employees,  and  of  knowing  as  long  as  possible  in  advance 
what  new  positions  are  to  be  created,  so  that  a  waiting  list  of  candi- 
dates for  them  may  be  secured.  There  is  need  of  change  in  the  cler- 
ical force  of  the  bureau  in  the  interest  of  good  administration.  The 
powers  and  duties  of  the  superintendent  should  be  in  some  particulars 
more  clearly  defined.  In  short,  there  has  arisen  the  same  necessitj^ 
for  reorganization  which  has  manifested  itself  in  connection  with 
many  other  bureaus  of  the  insular  government  which  have  developed 
rapidly.     A  draft  of  an  act  providing  for  such  reorganization  has  been 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  591 

prepared  and  submitted  to  the  Commission,  and  I  trust  that  action 
may  be  taken  upon  it  in  the  near  future.  In  it  provision  has  been 
made  for  the  accommodation  of  scientific  guests  who  ma}'  wish  to  visit 
the  Philippine  Ishmds  for  tlie  purpose  of  carrying-  on  research  work. 
It  is  important  that  the  facilities  of  the  laboratories  should  be  made 
availa])le  for  such  men.  This  could  be  done  at  slight  expense,  not  at 
all  commensurate  with  the  resulting  advantages. 

For  further  details  relative  to  the  work  of  the  bureau  of  govern- 
ment laboratories,  reference  is  made  to  the  report  of  the  superintend- 
ent of  government  laboratories,  which  is  appended  hereto  and  marked 
Appendix  G. 

THE  BUREAU  OF  PUBLIC  LANDS. 

The  chief  of  the  bureau  of  public  lands  reports  that  frequent 
inquiries  have  been  made  of  him  during  the  past  3'ear  as  to  the  area  of 
tlie  public  domain  of  the  Philippine  Islands.  He  states  that  accurate 
mformation  on  this  subject  can  not  be  furnished  at  the  present  time, 
l)ecause  of  the  lack  of  a  proper  system  of  survey's  and  of  trustworthy 
data  as  to  Spanish  land  titles.  He,  however,  roughly  estimates  the 
]>ublic  domain  at  01  million  acres,  of  which  some  40  million  acres  are 
forest  land  and  the  remaining  21  million  acres  are  lands  not  forested, 
most  of  which  are  agricultural  in  character  and  will  be  subject  to  dis- 
posal under  the  law  permitting  leasing,  sale,  and  homesteading  as  soon  as 
the  regulations  prepared  by  the  Philippine  Commission  under  the  law 
shall  have  become  efi'ective,  either  through  their  approval  by  Congress 
or  through  the  failure  of  Congress  to  act  upon  them. 

LEGISLATION   DRAFTED   BY   THE   CHIEF   OF   THE    BUREAU. 

At  my  request  the  chief  of  the  bureau  of  public  lands  drafted  rules 
and  regulations  relative  to  the  location  of  mining  claims  in  September, 
1902.  The  draft  prepared  b}^  him  was  submitted  to  a  number  of  prac- 
tical miners,  and  certain  changes  which  were  suggested  bv  them  and 
approved  b}'  him  were  incorporated.  These  regulations  were  then 
embodied  in  act  No.  624  of  the  Commission,  which  was  passed  on  Feb- 
ruary 7,  1003.  This  act,  as  amended  b}'  act  No.  777  and  act  No.  859, 
together  with  the  act  of  Congress  of  July  1,  1902,  constitutes  the 
existing  law  with  reference  to  the  acquiring  of  titles  to  mines  on  the 
public  domain  of  the  Philippine  Islands. 

Under  these  acts  there  have  been  presented  for  record  357  lode 
claims,  95  placer  claims,  6  coal  claims,  and  141  claims  the  character  of 
which  was  not  designated,  making  a  total  of  599.  The  distribution  of 
these  claims  b}'  provinces  is  as  follows:  Renguet,  285;  Lepanto-Bontoc, 
lOfJ;  Masbate,  60;  Surigao,  31;  Cebu,  26;  Nueva  Ecija,  17;  Bulacan, 
16;  Pangasinan,  16;  Am])os  Camarines,  15;  Tayabas,  10;  Antique,  5; 
Mindoro,  4;  A  bra,  2;  Laguna,  2;  Bataan,  1;  Ilocos  Sur,  1;  Misamis, 
1;  Rizal,  1. 

The  rules  and  regulations  relative  to  the  disposition  of  pu))lic  lands 
recjuired  to  be  prepared  b}-  the  government  of  the  Philippine  Islands 
by  section  13  of  the  act  of  Congress  of  Jul}'  1,  1902,  were  also  drafted 
and  embodied  in  an  act  ))y  the  chief  of  the  bureau  of  pul)lic  lands. 
This  act  has  been  carefully  considered  and  somewhat  modified  by  the 
Commission,  and  in  its  modified  form  will  be  submitted  for  public  dis- 
cussion at  Manila  before  its  passage  by  the  Commission. 


592  KKTORT8    OF    THE    CIVIL    GOVERNMENT 

The  acts  prrjuirecl  lor  the  C'()mmi.s.sioii  by  the  chief  oi'  the  Imreauof 
i)ul)lie  lands  have  been  very  earet'iilly  drat'ted  by  liim  jil'ter  much 
laborious  iiivestiLj-atioii,  and  have  l)eeu  of  <j;reat  assistance  to  the  Coni- 
iiiission  in  dealing"  with  the  important  mattei's  of  which  tiiey  treat. 

I'LAN    FOU   (50VERNMKNT    SURVEYS. 

The  important  work  of  preparing  aiid  reconnuendino-  to  the  Com- 
mission for  adoption  a  plan  for  a  system  of  surveys  for  the  islands 
has  been  referred  to  a  committee  consisting-  of  the  chief  of  the  bureau 
of  public  lands,  an  associate  judge  of  the  court  of  land  registration,  the 
chief  of  the  coast  and  geodetic  survey  of  the  Philippines,  the  chief  of 
the  mining  bureau,  and  the  consulting  engineer  to  the  Commission. 

SPANISH    LAND    TITLES. 

The  work  of  preparing  expedientes  relative  to  Spanish  land  titles 
has  progressed  somewhat  slowl}^  during  the  year,  owing  to  the  addi- 
tional l)urden  imposed  upon  clerks  of  tlie  bureau  ])y  the  necessity  of 
searching  for  and  making  certified  copies  of  documents  desired  b}'^ 
private  persons  and  by  other  bureaus  of  the  government,  and  more 
especially  to  the  death  of  Mr.  (rregorio  Basa,  chief  clerk  of  the  ]>ureau. 
Mr.  Basa  was  a  Filipino  who  had  a  very  accurate  and  intimate  knowl- 
edge of  Spanish  legislation  relative  to  public  lands  in  the  Philippines, 
and  his  death  is  a  very  serious  loss  to  the  bureau. 

DRAFT   OF   INSTRUCTIONS   TO    DEPUTY   MINERAL   SURVEYORS. 

The  chief  of  the  bureau  prepared  a  map  of  the  proposed  town  for 
lepers  on  the  island  of  Culion,  and  a  draft  of  a  manual  of  instructions 
to  deputy  mineral  surveyors.  He  also  examined  and  found  incorrect 
and  returned  to  the  company  several  times  a  description  and  plat  of 
the  right  of  way  required  l)y  the  Manila  and  Dagupan  Railway  Com- 
pany for  a  branch  line  to  Camp  Stotsenberg. 

ADMINISTRATION   OF   SAN   LAZARO   ESTATE. 

On  December  1,  1902,  the  chief  of  the  bureau  of  public  lands  was 
appointed  administrator  of  the  San  Lazaro  estate,  which  formerly 
belonged  to  the  Spanish  Government  and  became  the  property  of  the 
United  States  by  virtue  of  the  transfer  of  sovereignty  under  the 
treaty  of  Paris.  This  estate  is  the  owner  of  a  number  of  properties 
in  Manila,  the  proceeds  from  the  rentals  of  which  have  been  devoted 
to  the  maintenance  of  the  San  Lazaro  Hospital  for  lepers.  The  most 
important  of  these  properties  is  the  Hacienda  de  Mayhaligue,  situated 
in  the  northern  part  of  the  Santa  Cruz  district,  which  includes  some 
400  acres. 

The  chief  of  the  bureau  of  pu])lic  lands  found  that  the  rented  por- 
tion of  this  property  consisted  of  about  700  lots  in  the  hands  of  some 
460  tenants,  of  which  number  some  400  were  subletting  their  holdings 
to  other  tenants  in  violation  of  the  terms  of  their  agreement  with  the 
insular  government,  and  were  making  in  this  way  a  profit  of  150  to 
200  per  cent,  while  they  were  paying  to  the  government  an  amount 
equal  to  about  1|  per  cent  of  the  assessed  value  of  the  estate,  so  that 
the  government  was  losing  thousands  of  dollars  from  rentals  paid  by 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  593 

sublessees  to  its  tenants  who  had  no  right  to  receive  them.  He  esti- 
mated that  by  renting-  directly  to  the  sublessees  at  twice  the  rate  which 
the  government  had  previously  received  for  the  several  lots,  the  gov- 
ernment revenue  would  be  doubled,  while  at  least  90  per  cent  of  the 
actual  occupants  of  the  lots  would  pay  less  than  the}'  had  been  previ- 
ously paj'ing. 

On  January  1, 1903,  he  accordingly  posted  notices  requiring  all  per- 
sons owning  houses  on  the  estate  to  pay  their  land  rents  directly  to 
the  administrator  and  prohibiting  the  subletting  of  lots  except  in  case 
of  lots  containing  buildings  owned  by  the  lessors.  Vigorous  protests 
against  this  action  were  made  b}^  persons  who  had  been  subletting  their 
holdings  in  violation  of  their  agreements,  but  the  chief  of  the  bureau 
was  sustained  in  his  action  b}'  the  civil  governor. 

The  system  of  subletting  above  referred  to  had  resulted  in  subdi- 
viding the  blocks  of  the  estate  into  a  large  number  of  irregular  lots, 
which  were  without  systematic  arrangement,  and  man}^  of  which  did 
not  front  upon  any  street,  so  that  they  could  be  reached  onl^^  by  pass- 
ing over  lots  occupied  by  other  persons,  and  disputes  as  to  right  of 
way  naturall}'  arose  ^vith  frequency. 

The  chief  of  the  bureau,  therefore,  set  about  the  preparation  of  a 
system  of  lilocks  and  lots  which  would  give  to  each  tenant  a  frontage 
on  some  street  or  an  outlet  to  a  street  through  an  allej^way,  and  as  a 
preliminar}^  step  caused  to  bo  made  an  accurate  survej^  of  the  exterior 
lines  of  the  blocks  situated  south  of  the  San  Lazaro  Hospital  and  of 
the  boundaries  of  the  whole  property.  At  the  same  time  an  inspection 
was  made  of  each  lot,  the  name  of  the  occupant  was  ascertained,  and  a 
new  rental  roll  was  made  up. 

Meanwhile  a  careful  stud}'  of  the  property  was  undertaken,  with  a 
view  to  the  planning  of  a  system  of  streets  which  should  not  only 
accomplish  the  ends  above  mentioned  in  the  thickly  settled  portion  of 
the  estate  Init  should  extend  over  that  portion  which  is  as  yet  largely 
unsettled  and  without  streets. 

Before  the  details  of  the  proposed  system  could  be  worked  out  the 
thickly  settled  portion  of  the  estate  was  devastated  by  the  great  Trozo 
fire,  which  destroyed  practically  every  building  within  an  area  of  57 
acres  and  rendered  7,500  of  the  people  living  on  the  estate  homeless. 
Lines  of  demarkation  between  the  several  lots  in  the  l)urnt  district 
were  obliterated,  and  work  which  had  occupied  employees  of  the 
bureau  of  public  lands  for  months  was  completely  wij^ed  out.  A  plan 
of  streets,  blocks,  and  lots  was,  however,  eventually  prepared  and 
submitted  to  the  Commission,  })ut  that  body  finally  decided  in  favor  of 
another  plan  proposed  l)y  the  city  engineer  of  Manila. 

The  chief  of  the  bureau  of  public  lands  has  caused  proceedings  to 
be  brought  against  various  persons  to  whom  former  administrators  of 
the  estate  had  made  leases  for  a  period  of  ten  years,  in  violation  of  a 
provision  of  the  civil  code  which  prohibited  an  administi-ator  from 
making  a  lease  for  a  longei'  period  than  six  years  without  special 
authority.  Tliese  lessees  were  given  opportunity  to  rerent  the  prop- 
Ci'ties  at  a  rate  in  accordance  with  the  uniform  system  which  had  been 
established,  and  on  their  failure  to  do  so  their  contracts  were  canceled 
and  proceedings  wove.  institut(Ml  to  recover  back  rent  and  to  (^ject  them 
froni  the  premises.  Should  the  government  win  these  suits,  it  is 
believed  that  the  moral  etl'cct  will  be  good  on  other  tenants  who  have 
resorted  to  questionable  means  to  avoid  the  payment  of  their  rents. 


594  RKPORTS    OF   THE    CIVIL    GOVERNMENT 

The  chief  of  the  bureau  of  public  lands  calls  attention  in  his  report 
to  an  arranyvnuMit  most  disadvantageous  to  thei^ovenunont,  by  which 
parcels  of  land  in  the  walled  city  of  Manila  and  elsewhere  l)elon<,^ing 
to  the  estate  are  held  under  contracts  known  in  Spanish  law  as  ""censos 
entiteuticos."  He  shows  that  in  one  instance  the  lessee  is  under  obli- 
gation to  pay  to  the  estate  a  ground  rent  of  38.37  pesos  per  year  for 
property  which  he  is  renting  for  3,000  pesos  per  annum,  and  that  the 
aggregate  amount  of  rentals  paid  to  the  estate  on  property  held  under 
these  "'•  censos''  in  the  walled  city,  the  assessed  value  of  whi(di  amounts 
to  ^30,946.60,  United  States  currency,  is  224.30  pesos,  or  about  $100 
United  States  currency.  He  very  properly  suggests  that  the  validity 
of  these  ''censos"  be  inquired  into;  that  they  be  set  aside  if  this  can 
legally  be  done;  and  that  the  owners  of  the  buildings  be  compelled  to 
pay  a  reasonable  rental  for  the  lots  on  which  they  stand. 

The  chief  of  the  bureau  of  public  lands  calls  attention  to  the  heavy 
burden  imposed  upon  him  and  upon  the  working  force  of  his  office  by 
the  administration  of  the  San  Lazaro  estate,  and  asks  to  Ije  relieved  of 
this  responsibility  for  the  reason  that  he  can  not  properly  discharge 
more  important  duties  if  he  gives  to  the  management  of  the  estate 
the  time  which  it  requires.  While  commending  him  very  heartily  for 
the  energy  and  efficiency  which  he  has  displa3'ed  in  unraveling  the 
tangled  affairs  of  the  estate  and  in  safeguarding  the  interests  of  the 
Government,  I  am  of  the  opinion  that  the  regular  employees  of  this 
bureau  should  not  be  burdened  with  this  matter,  and  that  if  the  admin- 
istration of  the  estate  remains  in  the  bureau  it  should  be  carried  on  by 
subordinate  employees  especially  appointed  for  this  purpose. 

CONGRESSIONAL   LEGISLATION    NEEDED. 

The  chief  of  the  bureau  of  public  lands  calls  attention  to  the  fact 
that  there  is  no  method  by  which  an  alien  while  residing  in  the  Philip- 
pine Islands  maj^  become  a  naturalized  citizen  of  the  United  States  or 
of  the  Philippines,  and  that  an  alien  who  has  taken  out  his  first  papers 
as  a  naturalized  citizen  of  the  United  States  can  not  complete  his  natu- 
ralization here,  so  that  men  of  foreign  birth  who  have  enlisted  in  the 
United  States  Army  after  years  of  residence  in  the  United  States,  and 
who,  after  faithful  service  and  honorable  discharge,  have  located  min- 
ing claims  here  have  eventually  found  that  they  could  not  make  legal 
locations  of  mining  claims  under  existing  law.  A  manifest  injustice 
results,  and  it  would  seem  that  this  matter  might  with  propriety  be 
submitted  to  Congress  for  remedial  legislation. 

He  also  calls  attention  to  the  fact  that  a  double  standard  of  measure- 
ment for  mining  claims  has  been  prescribed  in  the  act  of  Congress  of 
July  1,  1902.  It  appears  from  an  examination  of  sections  22,  23,  24, 
25,  31,  and  39  of  this  a(;t  that  the  intention  of  Congress  is  that  lode 
claims  be  measured  l)y  feet  and  their  contents  computed  in  acres,  while 
sections  43,  44,  and  48  of  the  same  act  show  that  placer  claims  are  to 
be  computed  in  hectares.  Sections  13,  14,  15,  18,  43,  48,  and  53  indi- 
cate that  it  was  the  intention  of  Congress  to  apply  the  metric  system 
to  the  surveying  of  the  public  domain  and  to  the  location  of  coal  lands 
thereon.  It  is  respectfully  suggested  that  such  a  doul)le  system  would 
be  highly  undesirable  and  that  it  was  proliaT)ly  not  the  intention  of 
Congress  to  prescribe  it.  Certainly  all  kinds  of  claims  should  be  sur- 
veyed by  one  standard  of  measurement.     The  advantages  of  the  metric 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  595 

system  are  too  well  known  to  require  enumeration,  and  I  recommend 
that  the  attention  of  Congress  be  invited  to  this  apparent  oversight  to 
the  end  that  the  use  of  the  metric  svstem  in  surve^'ing  all  kinds  of 
mining  claims  ma}"  be  legalized. 

The  chief  of  the  bureau  also  invites  attention  to  practical  difticulties 
which  arose  as  a  result  of  the  provision  "  that  the  '  location  line'  shall 
govern  the  direction  of  one  side  of  the  claim,  upon  which  the  survey 
shall  be  extended  according  to  this  act."  It  is  the  apparent  object  of 
this  section  to  provide  that  claims  shall  have  their  side  lines  parallel  to 
the  location  line  and  shall  be  of  a  rectangular  form,  but  section  22  per- 
mits a  departure  from  this  form  in  cases  where  the  boundary  line  of  a 
previously  surveyed  claim  is  adopted  as  common  to  both  claims. 

The  chief  of  the  bureau  shows,  by  means  of  a  diagram  and  full 
explanation,  the  difficulties  which  may  arise  under  the  provision  above 
quoted,  and  suggests  that  it  be  amended  so  as  to  read:  "That  the  side 
lines  of  the  claim  shall  be  parallel  to  and  the  end  lines  perpendicular 
to  the  location  line,  excepting  such  portions  of  the  said  side  lines  or 
end  lines  as  may  be  formed  by  adopting  the  boundaries  of  previously 
surveyed  claims."  He  recommends  that  the  above  amendment  be  sub- 
mitted to  Congress,  and  I  concur  in  this  recommendation. 

The  chief  of  the  bureau  also  calls  attention  to  the  fact  that  sections 
28  and  29  of  the  act  of  Congress  of  July  1,  1902,  and  sections  12  and 
13  of  act  No.  624  of  the  Philippine  Commission  refer  to  certain  cir- 
cumstances under  which  mining  claims  shall  not  be  recorded.  He 
suggests  that  while  the  law  appears  to  be  very  plain  as  to  what  these 
circumstances  are,  the  fact  remains  that  most  of  the  provincial  secre- 
taries are  not  persons  of  sufficient  knowledge  or  experience  to  justify 
placing  in  their  hands  discretionary  powers  in  a  matter  of  this  kind. 
It  is  his  opinion  that  it  would  bo  wise  for  Congress  and  the  Commis- 
sion so  to  amend  the  existing  law  that  nothing  shall  be  allowed  to 
prevent  the  recording  of  a  mining  claim;  leaving  the  requirements  of 
the  law  as  they  are,  but  permitting  no  one  to  say  whether  these 
requirements  have  been  complied  with  until  the  claim  reaches  the 
point  where  an  application  is  made  for  an  official  survey  with  a  view 
to  obtaining  title.  This  is  the  practice  in  the  United  States.  It  results 
in  throwing  the  responsibility  for  error  on  the  locator  of  the  claim, 
and  it  prevents  the  improper  exercise  of  authority  on  the  part  of  the 
recorder.  I  am  of  the  opinion  that  the  law  might  well  be  amended  in 
this  regard  as  suggested. 

I  desire  to  especially  commend  the  untiring  energy  and  the  high 
degree  of  efficiency  which  the  chief  of  the  bureau  of  public  lands  has 
displa3"cd  in  the  discharge  of  his  duties. 

For  fui'ther  details  as  to  the  work  of  the  bureau  of  public  lands 
during  the  past  year,  especially  as  to  its  operations  in  connection  with 
the  San  Lazaro  estate,  and  for  a  full  statement  of  the  reasons  for  the 
suggested  amendments  to  the  act  of  Congress  of  July  1,  1902,  refer- 
ence is  made  to  the  annual  report  of  the  chief  of  the  bureau,  which  is 
appended  hereto  and  marked  Appendix  H. 

TFIE  BUREAU  OF  AGRICULTURE. 

The  work  of  the  Iniieau  of  agriculture  during  the  past  year  has  been 
highly  satisfactory  so  far  as  the  preparation  and  publication  of  })ulletins 
embodying  information  likely  to  be  of  value  to  agriculturists  is  con- 


596  REPORTS    OK    THE    CIVIL    GOVERNMENT 

cerned.  So  far  as  concerns  tlio  establisliniont  and  operation  of  experi- 
ment farms,  the  stock  farm,  the  school  of  aoricultuiv,  and  the  han- 
dliiiii-  of  draft  animals  im])()rted  by  the  insular  g-overnment,  it  has  in 
many  particulars  been  highly  unsatisfactory. 

The  issuing  of  bulletins  containing  reliable  information  with  refer- 
ence to  proper  culture  methods  for  the  growing  of  crops  already  raised 
in  the  islands  and  to  the  introduction  of  crops  not  heretofore  grown, 
or  "with  reference  to  the  soils  of  the  several  provinces,  showing  what 
crops  may  be  grown  in  given  areas  to  the  best  adviintage,  is  undoubt- 
edly a  matter  of  great  im})ortance  to  the  prospective  foreign  or  Amer- 
ican investor  in  agricultural  lands  and  to  the  more  highly  educated 
Filipinos,  who  will  be  likely  to  read  such  bulletins  and  profit  by  the 
information  which  they  contain.  It  is,  however,  well  known  that  the 
average  Filipino  attaches  much  greater  importance  to  what  he  sees 
than  to  what  he  reads,  if  indeed  he  is  able  to  read,  and  it  is  unques- 
tionably true  that  if  the  masses  are  to  be  reached  and  agricultural 
conditions  in  the  islands  are  to  be  generally  improved  it  must  be  by 
practical  demonstrations  so  conducted  as  to  bring  to  the  attention  of 
the  common  people  the  advantageous  results  following  the  employ- 
ment of  improved  culture  methods  and  modern  agricultural  machinery. 
It  is  in  this  eminently  practical  work  that  the  bureau  has  shown  itself 
to  be  weak,  and  improvement  in  this  regard  must  be  had.  While  it  is 
true  that  serious  obstacles  have  been  encountered  in  the  carrying*  out 
of  this  work,  I  am  of  the  opinion  that  the  results  obtained  have  not 
been  commensurate  with  the  opportunities  presented  and  the  funds 
appropriated. 

CHANGES  IN  WORKING  FORCE. 

The  working  force  of  the  bureau  has  been  augmented  during  the 
past  year  by  the  appointment  of  an  assistant  chief,  a  director  of  ani- 
mal industry,  a  superintendent  of  the  stock  farm,  and  a  director  of 
the  agricultural  college  and  experiment  station  in  western  Negros. 
The  botanist  who  was  originally  an  emplo^xo  of  the  bureau  has  been 
transferred  to  the  bureau  of  government  laboratories,  where,  under 
existing  provisions  of  law,  all  biological  work  for  the  insular  govern- 
ment and  its  bureaus  is  carried  on. 

The  bureau  suffered  two  serious  losses  during  the  year.  Mr.  J.  W. 
Gilmore,  the  fiber  expert,  who  was  doing  excellent  work,  resigned  in 
order  to  accept  a  college  position  in  the  United  States.  Mr.  Clarence 
W.  Dorsey,  the  soil  physicist,  whose  w^ork  during  his  comparatively 
brief  sojourn  in  the  islands  was  admirable,  but  who  had  been  only 
temporarily  loaned  to  us  by  the  United  States  Department  of  Agricul- 
ture, returned  to  Washington  to  resume  his  regular  duties.  During 
his  stay  in  the  Philippines  he  secured  the  data  for  a  bulletin  on  gen- 
eral soil  conditions  in  the  Philippines,  and  made  special  investigations 
into  the  soils  of  Union  Province,  the  soils  of  the  forest  areas,  and  the 
soils  of  Batangas  Province,  embod3'ing  the  results  of  his  work  in  bul- 
letins of  much  practical  vahie.  Before  his  return  to  Washington,  Mr. 
Dorsey  prepared  plans  for  continuing  soil  work.  The  services  of  a 
competent  man  have  recently  l^een  secured,  and  the  work  will  be  prose- 
cuted as  rapidly  as  possible  along  the  general  lines  suggested  by  Mr. 
Dorsey.  The  highly  practical  nature  of  this  work  and  the  great  impor- 
tance of  some  of  the  results  which  have  been  obtained  in  the  United 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  597 

States  are  too  well  known  to  require  discussion.  It  is  confidently 
believed  that  results  of  far-reaching  importance  will  be  obtained  in 
the  Philippine  Islands. 

WORK   OF   THE   CLERICAL   FORCE. 

The  clerical  force  of  the  bureau  has  been  kept  busy  in  systematic- 
ally arranging-  its  records,  translating  into  English  important  articles 
bearing  upon  agricultural -subjects  connected  with  the  islands  and 
numerous  letters  and  reports  from  Spanish-speaking  correspondents, 
and  in  compiling  information  relative  to  the  agicultural  products  of 
the  islands,  which  has  continued  to  come  in  in  response  to  circular 
letters  of  inquiry. 

PUBLICATIONS   OF   THE   BUREAU. 

The  following  bulletins  and  publications  have  been  issued  during 
the  year: 

Cacao  Culture  in  the  Philippines,  by  Wra.  S.  Lyon;  English  and  Spanish  editions. 

Modern  Rice  Culture,  by  Wui.  S.  Boudreau;  English  and  Spanish  editions. 

Preliminary  Report  on  the  Commercial  Fibers  of  the  Philippines,  by  J.  W.  Gil- 
more;  English  and  Spanish  editions. 

Cultivation  of  Tobacco,  l)y  Clarence  V^.  Dorsey;  English  edition. 

Report  on  the  Introduction  and  Distribution  of  Seeds  and  Plants  by  the  Bureau  of 
Agriculture,  by  Wm.  S.  Lyon;  P^nglish  edition. 

The  Cocoanut,  by  Wm.  S.  Lyon;  English  edition. 

A  Report  on  the  Agricultural  Soils  of  Union  Province,  by  Clarence  W.  Dorsey; 
English  and  Spanish  editions. 

Preliminary  Report  on  the  Abacd  Lands  of  the  Philippines,  by  Clarence  W.  Dor- 
sey; Spanish  edition. 

Soil  conditions  in  the  Philippines,  by  Clarence  W.  Dorsey;  English  edition. 

Botanical  work  in  the  Philippines,  by  Clarence  \V.  Dorsey;  English  edition. 

Botanical  work  in  the  Philippines,  by  Elmer  D.  Merrill ;  English  edition. 

There  has  also  been  published  a  Spanish  translation,  by  Sixtode 
Sandejas,  of  a  paper  on  fungoid  diseases  of  locusts,  which  first 
appeared  in  the  Yearbook  of  the  United  States  Department  of  Agri- 
culture. 

These  bulletins  and  publications  contain  a  large  amount  of  practical 
information  which  should  be  of  great  use  in  enlightening  the  public 
as  to  agricultural  possibilities  in  the  Philippines  and  in  aiding  the 
more  intelligent  Filipino  agriculturalists  to  improve  their  methods  of 
cultivation. 

SEED    AND    I'LANT    DISTRIBUTION. 

The  free  distribution  of  seeds  and  plants  to  Filipino  agriculturalists 
has  been  (continued  u[)on  a  c()nsi(k'nil)le  scale.  This  work  has  been 
complicated  by  the  fact  that  se(>ds  deteriorate  rapidly  during  that  por- 
tion of  the  year  when  the  aii-  is  very  (huu]).  A  large  amount  of  seed 
which  would  not  gcrniiiiaic^  has  been  distributed  by  the  bureau,  and 
this  fact  has  tended  to  discoursige  persons  who  had  become  interested 
in  (experimentation  with  American  scH'ds  and  who  went  to  more  or  less 
trouble  and  exjx'nse  in  i)laritiMg  dead  s(>cds  sent  to  theuL  Trial 
grounds  for  testing  seeds  have  been  estal)lished  at  Manila,  and  the 
sending  out  of  dead  seed.s  should  be  carefully  avoided. 


598  REPORTS    OF    THE    CIVIL    GOVERNMENT 

PROPOSEO    IMrUOVKMENT   OF    NATIVE    FRUITS. 

The  chief  of  the  l)ureau,  iu  his  uiiiuuil  ivport,  culls  altciition  to  the 
excoUence  of  many  of  tlie  native  fruits  ami  vcoct}ibh\s,  the  facihty 
■with  which  tliey  may  be  grown  and  the  certainty  of  yield,  and  to  the 
desiral)ility  of  conducting-  experiments  rehitive  to  their  improvement. 
There  can  be  no  question  as  to  the  desirability  of  such  experiments. 
I  trust  that  they  ma}^  be  pushed  to  conclusions  and  that  practical  results 
may  be  obtained. 

EXPERIMENTS   IN    GROWING    COFFEE. 

As  I  have  heretofore  stated,  the  coffee  plantations  of  Batangas, 
which  were  formerly  such  a  source  of  revenue  to  the  inhabitants,  have 
completely  disappeared  as  a  result  of  the  ravages  of  borers  and  of 
leaf  blight.  A  tract  of  good  coffee  land  in  this  province  has  been 
secured  by  the  bureau  of  agriculture,  which  hopes  to  rehal)ilitate  the 
cofi'ee  industry  in  Batangas  by  demonstrating  that  innnunity  from 
disease  and  insect  pests  may  be  obtained  Ijy  the  selection  of  vigorous 
varieties  of  coli'ee  and  the  adoption  of  the  best  systems  of  cultivation 
and  treatment.  Some  time  must  elapse  before  the  practical  value  of 
the  experiments  which  it  is  proposed  to  undertake  can  be  demonstrated. 

FIBER   INVESTIGATIONS. 

Probably  no  country  in  the  world  produces  a  greater  number  of 
valuable  liber  plants  than  do  the  Philippine  Islands.  The  fiber  expert 
of  the  bureau  has  prepared  for  publication  a  preliminary  report  upon 
the  commercial  fibers  of  the  Philippines,  and  has  also  made  investiga- 
tion and  report  on  the  abaca  (Manila  hemp)  industry  in  the  islands  and 
the  causes  leading  to  the  production  of  inferior  fiber.  The  informa- 
tion furnished  on  the  latter  subject  was  of  great  value  to  me  in  draft- 
ing legislation  providing  for  government  inspection  of  abaca  intended 
for  export. 

EXPERIMENT   STATION   AT   MANILA. 

Work  at  the  experiment  station  at  Manila  was  considerably  tiam- 
pered  by  the  extraordinary  drought  of  the  past  year  and  the  lack  of 
suitable  facilities  for  irrigation.  Tomatoes,  onions,  lettuce,  radishes, 
lima  beans,  string  beans,  eggplant,  peppers,  okra,  sweet  corn,  peas, 
sweet  potatoes,  and  l)eets  were,  however,  successfully  grown. 

When  it  is  rememl)ered  that  the  vegetables  at  present  consumed  in 
Manila  are  chiefly  imported  from  China,  where  cholera  ;ind  bubonic 
plague  are  practically  endemic,  and  where  human  excreta  are  used  for 
mamiring  vegetable  gardens,  it  will  be  readily  seen  that  the  success  of 
this  effort  to  grow  vegetables  in  the  vicinity  of  Manila  is  important. 
I  am  strongly  in  favor  of  excluding  all  vegetal)les  grown  in  China  as 
soon  as  an  adequate  supply  can  ])e  grown  in  the  islands. 

Another  important  result  obtained  at  this  experiment  station  has 
been  the  successful  growing  of  teosinte.  Forage  is  in  great  demand 
at  Manila,  and  the  price  is  so  high  as  to  be  practically  prohibitive  for 
the  poorer  classes.  The  experiments  showed  that  upon  well-fertilized 
ground  with  proper  management  it  is  reasonable  to  expect  a  minimum 


OF   THE    PHILIPPINE    ISLANDS,    1900-1903.  599 

of  100  tons  of  teosintc  fodder  to  the  acre  per  yenv.  The  crop  actually 
grown  was  sold  o-reen  at  $10  gold  per  ton,  and  it  seems  evident  that 
the  culture  of  this  valuable  forage  plant  will  bring  handsome  returns. 
Sesanumi  was  also  grown  with  success,  both  during  the  dry  and 
during  the  rainy  seasons,  the  gross  value  of  the  seed  crop  being  ^19.80 
gold  per  acre.  It  is  believed  that  three  crops  can  be  grown  on  a  given 
piece  of  land  during  the  year.  Tobacco  from  Sumatra  seed  was  also 
very  successfully  grown,  producing  fine  wrappers. 

GOVERNMENT  FARM  AT  SAN  RAMON. 

Work  on  the  government  farm  at  San  Ramon,  in  the  district  of  Zam- 
boanga,  has  been  continued  during  the  year.  The  work  upon  this,  as 
upon  all  experiment  stations  in  the  islands,  has  been  greatly  interfered 
with  during  the  past  year  by  the  drought,  which  even  killed  many  of 
the  abacii  plants.  Some  additional  buildings  have  been  erected  on  the 
farm,  and  the  existing  plantations  of  abaca  and  cocoanuts  have  been 
put  into  shape.  The  chief  of  the  bureau  of  agriculture  strongly 
recommends  in  his  report  that  steps  be  taken  to  extend  the  area  under 
cultivation  in  cocoanuts  on  this  farm.  In  this  connection  it  should  be 
said  that  many  months  since  1  requested  him  to  prepare  and  suljmit 
plans  for  the  systematic  increase  of  the  cultivated  area  on  this  farm. 
The  plans  submitted  to  me  in  response  to  this  request  contemplated 
the  substitution  of  the  present  very  efficient  superintendent,  Mr. 
Havice,  who  is  paid  $1,800  a  year,  by  another  gentleman  who  was  to 
receive  |3,500  per  year,  but  whose  services  have  since  been  secured 
for  the  bureau  of  agriculture  at  11,500  per  year. 

These  plans,  involving  as  they  did  a  heavy  increase  in  the  salary 
list  of  the  farm  and  very  largely  augmented  running  expenses,  were 
disapproved  by  me.  It  should  be  possible,  under  the  direction  of  the 
present  superintendent,  by  suitably  increasing  the  force  of  laborers, 
to  rapidly  extend  the  cultivated  area  and  within  a  few  years  to  make 
this  farm  pay  all  of  the  expenses  of  the  bureau  of  agriculture. 

EXPERIMENT  STATION  IN  BATANGAS. 

The  land  originally  chosen  for  an  experiment  station  in  the  province 
of  Batangas  proved  misuited  to  this  purpose,  as  it  became  so  dry  as  to 
})c  useless  during  the  hot  season,  and  irrigation  was  not  practicable. 
Practical  demonstrations  of  the  utility  of  modern  agricultural  machin- 
er}'  were  given  on  a  mmiber  of  occasions  in  the  province.  It  was 
shown,  among  other  things,  that  a  carabao  could  haul  a  G-inch  Ameri- 
can plow,  and  as  a  result  every  plow  of  this  description  in  Manila  was 
sold  within  the  next  two  or  three  weeks. 

On  account  of  the  unsuita])lencss  of  the  tract  originally  selected  I 
was  disposed  to  direct  the  discontinuance  of  experimental  work  in 
Batangas,  but  Capt.  D.  11.  Boughton,  treasurer  of  the  war  emergency 
rice  fund  for  the  province,  strongly  opposed  such  action  on  my  part, 
promising  to  turn  over  to  the  ])urcau  2.5  acres  of  good  land  together 
with  the  necessary  buildings  for  an  experiment  station,  a  windmill  to 
pump  water  for  irrigation,  and  a  paid-up  lease  on  the  land  for  liye 
yeais.  This  he  did  on  June  30,  1903.  The  buildings  consist  of  a 
dwelling  house  and  office,  a  stable,  and  an  80-foot  windmill  with  a 


GOO  REPORTS    OF    TITK    (UVIL    OOVERNMENT 

capacity  of  3,000  gallons  per  hour.  Important  practical  results  have 
not  as  Yot  been  ol)taiiied  at  tiiis  station,  and  indeed  ouyht  not  yet  to 
bo  looked  for,  owing-  to  the  shortness  of  tiie  time  which  has  elapsed 
siucc  the  property  was  secured. 

EXPERIMENTS   AT   EAOUIO,  BENGUET. 

On  November  13,  1902,  1  directed  that  Mr.  Thomas  Hanley  bo  sent 
to  Baguio,  in  the  province  of  Benf^uot,  to  continue  his  studies  of  the 
ao-ricultural  conditions  there.  Mr.  Hanley  was  sul)se([uently  also  put 
in  charo-e  of  the  improvement  of  the  grounds  about  the  buildings  of 
the  insular  govenmient  at  liaguio.  He  developed  remarkable  ability 
in  handling  Igorrote  labor,  and  accomplished  wonders  in  improving 
the  grounds  with  the  ver^-  limited  appropriation  at  his  disposal  for 
this  purpose.  He  carried  on  an  extensive  series  of  experiments  as  to 
the  fitness  of  the  soil  at  Baguio  for  growing  the  vegetables  and  grains 
of  the  Temperate  Zone.  The  seeds  planted  b}-  him  germinated  readily 
and  g-rew  Avell  for  a  time,  but  just  at  the  period  when  they  had  to 
bog-in  to  depend  upon  the  soil  for  nourishment,  the  young  plants,  with 
few  exceptions,  sickened  and  died,  showing  that  the  soil  either  con- 
tained some  injurious  element  or  lacked  some  essential  one.  It  will 
now  be  necessary  to  make  a  careful  and  detailed  chemical  examination 
of  the  soil,  which  has  every  outward  appearance  of  being  excellent. 
It  is  wortlw  of  note  in  passing  that  pumpkins,  squashes,  and  cucum- 
bers formed  an  exception  to  the  general  rule  and  flourished  where 
other  vegetables  languished. 

In  view  of  the  fact  that  the  Commission  has  taken  action  providing 
for  the  establishment  of  the  summer  capital  of  the  islands  at  Baguio, 
it  becomes  increasingly  important  to  overcome  the  difficulty  at  present 
experienced  in  growing  vegetables  at  that  place,  and  further  investi- 
gations to  this  end  will  be  conducted. 

Meanwhile  I  have  directed  the  transfer  of  the  experiments  to  the 
neighboring  Trinidad  Valley,  distant  a}>out  3  miles,  wh(n-e  land  has 
been  set  aside  by  executive  order  of  the  civil  governor  for  this  pur- 
pose. The  provincial  inspector,  Senor  Emigdio  Octaviano,  has  grown 
there  successfully  sweet  corn,  tomatoes,  red  peppers,  endive,  beets, 
turnips,  peas,  beans,  squashes,  cucumbers,  carrots,  spinnach,  lettuce, 
cauliflower,  celery,  and  oats.  He  informs  me  that  wheat  was  raised 
there  successfully  during  the  Spanish  regime. 

The  Trinidad  Valley  is  said  to  be  about  500  feet  lower  than  Baguio. 
The  slight  resulting  diflerence  in  temperature  could  hardly  account 
for  the  widely  dittcrent  results  obtained  from  experiments  in  the 
growing-  of  vegetables  in  the  two  localities,  and  the  conclusion  seems 
inevitable  that  the  explanation  of  the  results  obtained  is  to  be  sought 
in  varying  soil  conditions.  The  ground  used  for  experimentation  at 
Baguio  was  newly  plowed.  It  may  bo  that  continued  cultivation  with 
the  use  of  suitable  fei'tilizers  will  result  in  overcoming  the  difficulties 
heretofore  encountered.  The  valley  at  l>aguio  has,  it  seems,  always 
Giijoyed  a  bad  name  among  the  Igorrotos  as  an  agricultural  region. 
In  any  event,  the  Trinidad  Valley  contains  sufficient  land  to  produce 
all  the  vegetal)les  which  are  likely  to  be  needed  l)y  the  inhabitants  of 
the  cit}'  which  will  doubtless  eventually  spring  up  at  Baguio. 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  601 

AGRICULTUllAI.   COLLEGE. 

By  act  No.  512,  passed  Noveni])cr  10,  1902,  the  work  of  establish- 
ing- an  aoricultural  college  was  transferred  from  the  bureau  of  public 
instruction  to  the  bureau  of  agriculture,  and  the  government  farm 
known  as  ''La  Granja  Modelo"  in  western  Negros  was  set  aside  as  a 
site  for  this  school  and  for  an  experiment  station  to  be  conducted  in 
connection  with  it.  I  was  particularly  anxious  that  the  work  of 
establishing  this  school,  which  is  badly  needed,  should  be  pushed. 
My  requests  for  the  submission  of  plans  for  the  necessary  buildings 
were  met  by  recomiuendations  for  the  appointment  of  a  portion  of  the 
teaching  staff  for  the  school.  As  it  did  not  appear  that  teachers  could 
be  usefully  employed  prior  to  the  erection  of  buildings  in  which  they 
could  teach  and  the  gathering  of  students  to  ))e  instructed  by  them,  1 
declined  to  approve  this  proposal,  and  insisted  upon  the  preparation 
of  rough  plans  for  the  buildings  needed,  so  that  they  could  bo  sub- 
mitted to  the  insular  architect  as  a  basis  for  finislied  plans  and  esti- 
mates of  cost.  After  long-continued  delaj^,  plans  for  a  main  })uilding, 
to  contain  laboratories,  class  rooms,  offices,  and  a  dormitory  for  stu- 
dents, were  prepared.  Twenty-live  thousand  dollars  have  been  appro- 
priated for  the  construction  of  this  building.  On  March  25,  1903,  a 
director  of  the  experiment  station  was  appointed,  in  order  that  he 
might  take  charge  of  the  governmer.t  property  on  the  estate  and  l)egin 
the  Avork  of  getting  land  under  cultivation.  Much  valuable  time  has 
been  needlessly  lost  in  establishing  this  college. 

ANIMAL   INDUSTRY. 

No  work  which  legitimately  falls  within  the  scope  of  the  bureau  of 
agriculture  is  at  present  more  important  than  that  of  animal  industry. 
With  the  dreadful  losses  of  horned  cattle,  due  to  rinderpest;  the 
heavy  call  for  native  horses  in  Manila,  which  has  resulted  in  draining 
the  provinces  of  good  animals  and  their  transportation  to  the  capital 
of  the  islands,  where  many  of  them  have  died  from  abuse;  and  the 
ravages  of  surra  and  glanders  among  the  horses  of  the  archipelago,  it 
has  become  increasingly  important  to  restock  the  islands  with  the 
draft  animals  to  which  the  Filipinos  are  accustomed,  as  well  as  to 
introduce  new  draft  animals  and  improve  existing  breeds.  A  stock 
farm  where  ]>reeding  experiments  can  be  conducted  has  been  estab- 
lished on  the  island  of  Culion.  Seventy  imported  calves,  3  American 
mares,  2  Australian  mares,  16  native  mares,  6  mules,  and  1  Arabian 
stallion  have  been  sent  there.  The  location  selected  for  this  farm 
seems  to  be  an  ideal  one,  and  the  animals  upon  it  are  in  excellent  con- 
dition. A  large  number  of  animals  for  breeding,  for  which  requisition 
was  made  on  December  1, 1902,  and  April  21,  1903,  which  are  to  come 
fi'om  the  United  States,  Italy,  India,  and  Java,  have  not  been  received, 
owing  to  transportation  difliculties,  l)ut  when  they  ari'ive  experiments 
of  great  interest  and  importance  to  the  islands  will  be  possible. 

It  should  be  stated  that  Dr.  Harry  H.  Dell,  who  is  in  innnediate 
charge  of  the  work  in  animal  industr}^,  has,  by  my  direction,  given  a 
large  part  of  his  time  to  aiding  the  boai-d  of  health  and  the  bureau  of 
government  laboratories  in  the  work  of  inoculating  the  horned  cattle 
of  the  archipelago  ag'ainst  rinderpest.     I  deem  the  pushing  of  this 


602  REPORTS    OF    THE    CTVTL    GOVERNMENT 

work  ill  provinces  whore  rinderpest  exists  to  ])e  of  nioi'o  ininiediatc 
and  vital  importance  than  any  othtM"braiicii  ol'  work  in  animal  industr3% 
Mr.  A.  fl.  ^\'ashburne,  who  was  appointed  manager  ol"  the  stock 
farm  and  who  very  energetically  and  capably  conducted  the  prelimi- 
nary work  of  establishing  it,  was  on  April  \)  detailed  to  accompany 
the  insidar  purchasing  agent  to  make  investigations  preliminary  to  the 
purchase  and  importation  of  carabaos  for  distribution  in  the  Philip- 
pine Islands.  Mi'.  Zalmon  K.  Miller,  expert  in  farm  machinery  and 
farm  management,  w^as  made  acting  manager  of  the  stock  farm  during 
the  absence  of  Mr.  Washburne. 

CARE  OF  CARABAOS  IMPORTED  BY  THE  GOVERNMENT. 

The  work  of  caring  for  the  carabaos  imported  at  Manila  by  the 
government  prior  to  their  distribution  through  the  provinces  naturally 
fell  to  the  bureau  of  agriculture,  but  the  same  inability  to  grapple 
promptly  and  successfully  with  practical  prol)lems  which  has  charac- 
terized the  bureau  in  dealing  with  various  other  important  enterprises 
was  manifested  to  such  a  degree  that,  with  the  approval  of  the  civil 
governor,  I  relieved  the  bureau  of  this  duty  and  imposed  it  upon  the 
officers  and  employees  of  the  serum  laboratory,  by  whom  it  has  been 
efficiently  performed. 

GOVERNMENT   RICE    FARM. 

In  my  last  annual  report  I  stated  that  an  experiment  station  for  the 
growing  of  rice  upon  a  large  scale  was  to  be  established  near  the  cen- 
ter of  the  great  rice-producing  area  extending  from  Manila  to  near 
Dagupan.  This  statement  was  based  upon  the  fact  that  the  Commis- 
sion had  committed  itself,  in  a  general  way,  to  the  establishment  of 
such  a  farm,  in  order  that  the  value  of  modern  agricultural  machinery 
and  modern  culture  methods  in  connection  with  the  rice  industry 
might  be  demonstrated  to  the  Filipinos.  The  chief  of  the  bureau  of 
agriculture  had  submitted  figures  showing  that  the  establishment  of 
such  a  farm  would  be,  from  a  pecuniary  standpoint,  a  profitable  invest- 
ment of  government  funds,  and  had  informed  me  that  the  refusal  of 
suital)le  lands  between  Bacolor  and  Pampanga  had  been  secured  upon 
the  basis  of  payment  to  the  owners  of  one-fourth  of  the  annual  rice 
crop,  this  arrangement  to  continue  for  two  years,  with  the  option  of 
renewing  it  at  the  end  of  that  time  for  a  like  period. 

Some  time  was  lost  in  securing  from  the  chief  of  the  bureau  satis- 
factory detailed  estimates  of  the  cost  of  the  necessar}^  machinery,  seed, 
draft  animals,  and  buildings.  When  it  was  found  that  100  nudes  would 
be  required  to  carry  on  the  work  upon  this  farm,  the  Commission  hesi- 
tated to  make  the  necessary  appropriation,  on  account  of  the  danger 
of  losing  the  mules  from  surra.  On  February  11,  1903,  however,  act 
No.  684,  authorizing  the  establishment  of  a  government  rice  farm,  not 
to  exceed  2,000  acres  in  extent,  and  appropriating  $63,221  for  its  equip- 
ment and  maintenance,  was  passed  by  the  Commission.  It  then  proved 
that  the  provisional  arrangement  entered  into  by  the  chief  of  the  bureau 
of  agriculture  with  the  owners  of  the  tract  of  land  above  referred  to 
was  not  binding  upon  the  owners,  who  refused  to  live  up  to  their 
original  agreement. 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  603 

My  first  intimation  that  difficulty  had  arisen  in  securing  this  land 
came  when  1  received  at  Baguio,  in  the  province  of  Benguet,  a  request 
that  I  approve  the  expenditure  of  a  large  sum  for  the  erection  of  ))uild- 
ings  upon  a  tract  of  land  in  the  province  of  Tarlac,  which  had  been 
selected  for  the  farm.  Before  approving  such  expenditure  I  deemed 
it  advisable  to  ascertain  for  how  long  a  period  and  upon  what  terms 
this  ti-act  of  land  had  been  rented.  Inquiry  on  these  subjects  elicited 
the  reply  that  only  temporary  control  of  the  land  had  been  secured, 
and  developed  the  further  a^^tonishing  fact  that  arrangements  had  been 
entered  into  for  leasing  it  prior  to  the  running  of  lines  to  determine 
whether  or  not  the  land  could  ])e  irrigated,  and  that  the  subsequent 
running  of  such  lines  had  shown  the  impracticability  of  irrigating  a 
sufficient  area.  The  plan  of  investing  heavily  in  government  buildings 
upon  this  property,  temporarily  secured,  and  unsuited  to  the  purpose 
for  which  it  was  o))tained,  was  therefore  disap]:)ro  ved.  A  certain  amount 
of  cultivation,  however,  was  undertaken  by  Mr.  Boudreau,  who  had 
been  put  in  charge  of  the  farm,  and  was  carried  out  by  him  in  the  face 
of  many  obstacles. 

The  only  important  result  thus  far  obtained  seems  to  be  that  the 
practicability  of  using  American  mules  continuously  for  heavy  field 
work  through  the  nionths  of  May,  June,  and  July  has  been  demon- 
trated,  and  that  wdiile  the  question  of  suitable  forage  for  mules  is  at 
present  a  somewhat  serious  one,  corn  does  well  in  the  Philippine  low- 
lands, cow^peas  are  likely  to  succeed,  and  upland  rice  makes  a  superior 
hay.  These  three  crops  supply  satisfactory  forage  for  mules,  so  that 
the  difficulty  of  feeding  them  is  by  no  means  insuperable. 

The  chief  of  the  bureau  of  agriculture  in  his  annual  report  quotes  the 
recommendation  of  the  superintendent  of  the  rice  farm  "that  steps  be 
taken  at  once  to  secure  a  more  suitable  location  for  the  farm,"  and, 
presumably,  approves  it.  It  therefore  appears  that  we  are  no  further 
advanced  in  tlie  practical  work  of  establishing  a  rice  farm  than  we  were 
at  the  time  the  appropriation  for  it  was  made.  The  superintendent  of 
the  rice  farm  in  his  report  further  says:  "After  the  tract  has  been 
located,  a  thorough  survey  should  be  made,  and  the  question  of  natural 
or  artificial  irrigation  will  have  to  be  considered  and  cost  thereof."  In 
these  suggestions,  apparently  born  of  recent  experience,  I  emphatic- 
ally concur. 

For  further  details  relative  to  the  worlf  of  the  bureau  of  agriculture 
during  the  past  year,  reference  is  made  to  the  report  of  the  chief  of 
the  bureau,  which  is  appended  hereto  and  marked  Appendix  I. 

THE  WEATHER  BUREAU. 

^  Under  the  aT)le  directorship  of  the  Rev.  Jose  Algue,  S.  J.,  the  effi- 
ciency of  the  Philii>pine  weather  bureau  continues  to  increase  as  the 
extension  of  telegi'aph  and  cable  lines  and  the  restoration  of  peaceful 
conditions  make  comnumication  with  the  several  weather  stations 
throughout  the  islands  quicker  and  less  subject  to  interruption.  This 
bureau  is  unique  in  that  practically  all  of  its  officers  and  emplo3^ees, 
with  the  exception  of  the  director  and  three  assistant  directors,  are 
Filipinos.  The  employees  include  first,  second,  third,  and  fourth  class 
observers,  calculators,  clerks,  draftsmen,  and  the  mechanics  who  repair 
the  numerous  complex  and  delicate^,  instruments  used  in  the  service, 
and  who  even  construct  such  instruments 


(304  REPORTS    OF    THE    CIVIL    GOVKKNMENT 

WEATHKli   SPATIONS. 

There  avoat  present  established  and  in  operation  7  first-class  stations, 
11  second-class  stations,  2;)  third-class  stations,  and  13  fourth-class 
stations.  Guhat,  a  third-class  station  in  the  province  ot"  Sorsot^on, 
island  of  Luzon,  is  an  important  addition  to  the  list  and  will  probably 
soon  be  telcyrai^hicaily  connected  with  the  central  station  at  Manila, 

The  suggestion  is  made  by  the  director  of  the  weather  bureau  that 
a  cable  be  extended  to  the  small  island  of  San  Bernardino  at  the  Pacific 
entrance  of  the  San  Bernardino  Straits,  and  that  a  station  be  erected 
there,  so  that  warning  signals  may  be  displayed  for  the  benefit  of  vessels 
coming  from  America  before  they  enter  the  interinsular  and  China  seas. 

The  importance  of  establishing  a  station  of  the  weather  bureau  at 
Guam,  so  that  information  as  to  the  origin  and  progress  of  typhoons 
in  the  vicinity  of  that  island  ma}^  be  communicated  to  Manila  and  that 
warnings  of  storms  in  the  track  of  vessels  between  Guam  and  the 
Philippines  ma}^  be  sent  to  the  former  place,  has  been  brought  to  the 
attention  of  the  Commission  by  the  director  of  the  weather  bureau 
and  that  hody  has  resolved  that  a  station  should  be  established  at  Guam 
and  has  taken  the  necessary  steps  to  that  end  by  opening  communica- 
tion with  the  naval  authorities  holding  jurisdiction  over  the  island. 
An  observer  is  ready  to  be  sent  there  and  the  station  will  be  estab- 
lished promptly  should  it  prove  practicable  to  make  satisfactory 
arrangements  with  the  naval  authorities.  It  is  to  be  regretted  that 
the  Commercial  Pacific  Cable  Company  has  declined  to  grant  the  free 
transmission  of  weather  reports  from  Guam  to  Manila,  thus  departing 
from  the  liberal  policy  which  has  been  pursued  by  the  Eastern  Exten- 
sion, Australia,  India  and  China  Cable  Company. 

A  systematic  inspection  of  the  weather  stations  has  been  kept  up 
during  the  past  3'ear  with  beneficial  results,  as  many  of  the  observers 
are  not  sufficientlj^  expert  to  detect  inaccuracies  in  their  instruments 
or  to  remedy  defects  when  discovered. 

NEW   INSTRUMENTS. 

A  new  Universal  Vicentini's  microseismograph  and  a  new  cerauno- 
graph  have  been  constructed  by  the  mechanics  at  the  central  station, 
and  will  be  exhibited  at  the  Louisiana  Purchase  Exposition.  A  Jor- 
dan's sunshine  recorder  has  been  sent  to  the  station  at  Catbalogan  for 
purposes  of  experimentation.  A  statoscope,  an  electric  chronograph 
employed  for  transmitting  official  time  to  the  different  stations  in  the 
Philippines,  an  actinometograph,  and  an  evaporimetograph  have  been 
added  to  the  equipment  of  the  central  station  at  Manila. 

CROP   SERVICE. 

The  crop  service  inaugurated  by  the  weather  bureau  in  1901  has 
steadil}^  increased  in  importance.  Information  has  been  received  dur- 
ing the  past  year  from  299  municipalities  in  33  provinces. 

ESTABLISHMENT   OF   STORM   SIGNALS. 

On  the  recommendation  of  the  director  of  the  weather  bureau,  the 
necessary  appropriation  has  been  made  for  establishing  storm  signals 


OF    THE    PHILIPPINE    ISLANDS,    1!)00-1903.  605 

atZamboanga,  Romblon,  Catbalogan.  Taclobaii,  Surigao,  Jolo,  Lcgaspi, 
Antiniontin,  Corregidor,  Lucena,  and  Olongapo.  The  installation  of 
these  signals  will  niaterially  facilitate  the  communication  of  storm  warn- 
ings to  vessels  at  these  important  ports. 

PUBLICATIONS   OF   THE   BUREAU. 

The  publications  of  the  bureau  during  the  past  year  consist  of  the 
reg-ular  monthly  bulletins,  and  the  following-  separate  papers: 

The  third  part  of  the  report  of  the  director  of  the  bureau  for  1902, 
containing-  the  hourly  observations  of  atmospheric  phenomena  at  the 
Manila  central  observatory  during  the  calendar  year  1902. 

The  fourth  part  of  the  same  report,  containing  hourly  magnetic  obser- 
vations in  Manila  during-  the  same  year  (in  press). 

The  fifth  part  of  the  same  report,  embod3ang-  a  resume  of  the  meteor- 
olog-ical  observations  in  branch  stations  for  the  calendar  year  1902  (in 
press). 

The  iirst  of  a  series  of  pamphlets  on  theoretical  and  practical  meteor- 
ology, entitled  ''rain"  (la  lluvia).  The  series  of  pamphlets,  of  which 
the  one  on  rain  is  the  first,  is  intended  for  the  use  of  o])servers  in  the 
weather  stations  throughout  the  islands. 

An  article  on  the  climate  of  the  Philippine  Islands,  to  be  published 
in  the  report  of  the  census  of  the  Philippines. 

An  article  by  Father  Algue,  director  of  the  bureau,  on  the  climate 
of  the  Philippines. 

A  very  exhaustive  article  on  seismic  phenomena  in  the  Philippines, 
by  Rev.  Father  Miguel  Saderra  Maso,  for  publication  in  the  report  of 
the  Philippine  census. 

Finall}',  a  new  English  edition  of  Father  Algue's  very  important 
work  on  "Baguios,"  or  Philippine  cyclones,  has  been  made  read}^  for 
publication. 

EXHIBIT   AT   THE    LOUISIANA    PURCHASE    EXPOSITION. 

Arrangements  for  an  adequate  exhibit  of  the  bureau  at  the  Louisiana 
Purchase  Exposition  have  been  perfected,  and  the  bureau  has  prepared 
large  relief  maps  of  Manila  Bay,  Taal  Volcano  and  Maj^on  Volcano, 
to  be  exhibited  at  the  exposition.  Father  Algue  will  shortl}^  proceed 
to  St.  Louis  to  construct  a  large  relief  map  of  the  Philippines  on  the 
exposition  grounds. 

REPAIRS   OF   INSTRUMENTS. 

Owing  to  the  peculiar  climatic  conditions  in  the  Philippines,  a  large 
amount  of  patient  and  delicate  work  is  required  to  keep  the  munorous 
instruments  of  precision  at  the  central  station  at  Manila  and  at  the 
several  provincial  stations  in  good  working  order.  This  work  is  done 
in  an  admirable  manner  by  Filipino  mechanics,  who  have  kept  the 
instruments  at  the  central  observatory  in  proper  (condition  for  work; 
prepared,  checked,  and  packed  all  instruments  sent  to  branch  stations; 
and  repaired  many  instruments  ])elonging-  to  branch  stations,  to  the 
United  States  Army,  the  United  States  Navy,  civilian  oflicialsand  pri- 
vate individuals.  More  than  fifty  aneroid  l)arometcrs  and  several 
mercurial  barometei-s  have  been  repaired  and  rated. 
23181—04 39 


GOO  REPORTS    OF    THE    CIVIL    (;OVERNMENT 

ASTRONOMICAI.   WORK. 

The  astronomical  department  of  the  observatory  has  furnished 
standard  time  daily  by  tele^iaph  to  all  teleoraph  ofBces  in  the  archi- 
pelago, and  by  time  ball  to  vessels  in  Manila  IJay;  has  o])served  the 
eclipse  of  INhirch  28,  li>03;  has  kept  up  regular  observations  of  solar 
activity,  with  drawings  of  sun  spots  in  connection  with  magnetic 
observations;  and  has  rated  31)  chronometers.  Transits  of  stars  are 
regularly  obserx'ed  for  the  purpose  of  rating  the  standard  pendulum 
and  the  chronometers. 

MAGNETIC    OBSERVATORY. 

The  work  of  the  magnetic  department  of  the  observatory  has  been 
materially  interfered  with  during  the  past  year  by  galvanized-iron 
roofs  upon  neighboring  stables  established  for  the  accommodation  of 
horses  used  for  government  transportation.  It  will  probably  be  neces- 
sary either  to  remove  the  iron  roofs  or  to  locate  the  magnetic  observ- 
atory elsewhere. 

PROMOTION   WITHOUT   COMPETITIVE    EXAMINATION    AUTHORIZED. 

During  the  year  the  bureau  has  been  authorized  by  the  civil-service 
board  to  promote  observers,  calculators,  assistant  observers,  and  assist- 
ant calculators  who  have  been  more  than  four  years  in  the  service  to 
higher  rank  without  the  necessity  of  competitive  or  other  examination, 
provided  such  promotions  are  not  made  to  positions  -paying  salaries  of 
more  than  $900  per  year. 

The  chief  of  the  bureau  has  been  authorized,  by  act  of  the  Commis- 
sion, to  change  the  location  of  weather  stations  fixed  by  law,  in  his  dis- 
cretion, if,  as  the  workof  establishing  stations  progresses,  he  finds  that 
in  some  instances  places  other  than  those  named  in  the  original  act 
providing  for  their  establishment  are  better  suited  to  the  requirements 
of  the  weather  service. 

The  first  of  these  authorizations  will,  it  is  believed,  tend  to  encour- 
age faithful  discharge  of  their  duties  by  the  employees  Avhom  it  affects. 
The  second  was  found  to  be  necessary  for  the  reason  that  variation 
from  the  original  plan  for  the  establishment  of  telegraph  and  cable 
lines  in  the  archipelago  left  certain  points  originally  designated  as 
sites  for  important  weather  stations  without  telegraphic  communica- 
tion, and  for  the  further  reason  that  certain  other  points  have  been 
shown  by  actual  experience  to  be  unsuited  for  weather  stations. 

For  further  details  relative  to  the  work  of  the  weather  bureau  dur 
ing  the  past  year,  reference  is  made  to  the  annual  report  of  the  director 
of  the  bureau,  which  is  appended  hereto  and  marked  Appendix  J. 

THE  ETHNOLOGICAL  SURVEY  FOR  THE  PHILIPPINE  ISLANDS. 

The  name  of  the  bureau  charged  with  the  duty  of  gathering  infor- 
mation relative  to  the  non-Christian  tribes  of  the  archipelago  has  been 
changed  from  "  the  bureau  of  non-Christian  tribes"  to  the  more  fitting 
designation  of  "  the  ethnological  survey  for  the  Philippine  Islands." 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  607 

NECESSITY   FOR  SURVEY. 

The  policy  of  spending  insular  funds  for  this  work  has  been  made 
the  subject  of  criticism  by  various  persons,  among  Avhom  were  some 
individuals  whose  injudicious  or  culpable  actions  in  dealing  with  the 
non-Christian  peoples  of  the  islands  were  brought  to  tlie  attention  of 
the  proper  authorities  through  the  activity  of  employees  of  the  survey. 

I  am  unable  to  see  how  the  insular  government  could  hope  success- 
fully to  undertake  to  protect  the  wild  tribes  of  the  islands  from  impo- 
sition at  the  hands  of  civilized  Filipino,  American,  and  other  residents, 
or  to  establish  local  governments  for  them,  in  the  absence  of  accurate 
and  reliable  information  concerning  them  and  their  relations  with  their 
neighbors.  The  desirability  of  obtaining  such  information  is  self- 
evident  and  need  not  be  discussed. 

TRANSFER   OF   THE    CHIEF   OF   THE   BUREAU. 

Dr.  David  P.  Barrows,  the  chief  of  the  ethnological  survey,  has 
recently  been  appointed  general  superintendent  of  public  instruction. 
Although  he  temporarily  retains  general  charge  of  the  survey,  his  new 
duties  necessarily  consume  the  greater  part  of  his  time.  The  loss  to 
the  survey  which  must  result  from  this  transfer  is  serious  and  is 
greatly  regretted  by  me.  Doctor  Barrows  was  peculiarly  fitted  suc- 
cessfully to  carry  out  this  survey,  and  it  will  be  very  difficult  to  lind 
anyone  who  can  satisfactorily  take  his  place. 

WORK   OF   THE    SURVEY. 

During  the  past  year  a  preliminary  exploration  of  all  the  previouslv 
little-known  parts  of  the  islands  has  been  nearly  completed.  It  is 
believed  that  by  the  time  this  report  goes  to  the  press  field  parties  of 
the  ethnological  survey  will  have  visited  practically  every  non-Christian 
tribe  in  the  archipelago,  and  secured  the  geographical  and  ethnological 
data  necessary  to  complete  our  knowledge  as  to  the  number  of  non- 
Christian^  tribes,  and  the  general  habitat  and  more  important  pecul- 
iarities of  each  of  them. 

The  necessity  of  securing  this  information  at  an  early  date,  and  of 
making  necessary  prepai-ations  for  an  adequate  representation  of  the 
non-Christian  tribes  at  the  coming  Louisiana  Purchase  Exposition  at 
St.  Louis,  has  kept  the  employees  of  the  survey  almost  constantl}^  in 
the  field,  and  has  prevented  to  a  considerable  extent  the  preparation 
for  publication  of  the  scientific  results  achieved. 

The  officers  and  employees,  from  the  chief  down,  have  shown  com- 
mendable energy  and  perseverance  in  pushing  their  explorations,  which 
have  frequently  involved  no  little  hardsliip  and  danger.  The  dilli- 
culty  of  their  undertaking  will  be  realized  when  it  is  remembered  that 
the  territory  occupied  by  non-Chi-istian  triljcs  embraces  considerably 
more  than  half  of  the  superficial  area  of  the  archipelago,  and  is  foV 
the  most  part  rugged  and  Avithout  roads  or  even  pony  trails. 

In  September,  1902,  a  party  consisting  of  the  cliief  and  assistant 
chief  of  the  survey,  the  government  photographer,  and  Sefior  Vicente 
Garcia  entered  upon  an  extensive  i-ecoimoissance  of  the  tribes  inhabit- 
ing the  mountain  region  of  north-central  Luzon.  This  party  started 
from  Ambuklao,  in  Benguet,  visited  the  old  comandaucia  of  Quiapa 


608  REPORTS    OF    THE    CIVIL    (iOVEUNMKNT 

(Kayapa),  ascended  Mount  Uffu,  the  highest  peak  in  the  southern  part 
of  the  CordiUora  Central,  and  entered  Nneva  Viseaya,  going-  l)y  way 
of  Santa  Cruz  de  iManga  to  Aritaoand  Diipax.  From  the  hitter  point 
a  short  trip  was  made  to  visit  the  little  known  Ihilao,  in  the  mountains 
to  the  eastward. 

The  party  then  entered  the  district  of  Quiangan  (Kiangan),  in  Nueva 
Vizcaya.  Jn  this  region  tiie  natives  were  found  to  be  still  actively 
engaged  in  head-hunting,  and  progress  was  made  difficult  and  danger 
ous  by  the  local  fends.  The  |)arty  therefore  turned  back  and  pro- 
ceeded to  lligan,  the  capital  of  the  province  of  Isabela.  From  this 
point  as  a  base,  the  Kalinga  villages  in  the  foothills  of  the  Sierra  Madre 
were  visited. 

The  party  then  worked  its  way  through  the  Cordillera  Central  to 
Bontoc  ))y  way  of  Itaves  and  the  Kio  Chico,  returning  to  Baguio,  the 
capital  of  Benguet,  by  way  of  Cervantes,  Suyoc,  and  the  Agno  Kiver 
Valle3^  This  trip,  involving  great  physical  hardship  and  no  little 
danger,  resulted  in  the  gathering  of  very  interesting  and  important 
information  relativ  e  to  the  geography  of  the  region  traversed  and  to 
the  character  of  the  great  Igorrote  family  of  mountain  tribes.  A  large 
series  of  photographs  was  secured  and  brief  vocabularies  of  eleven 
distinct  native  dialects  were  made. 

In  February,  1903,  the  services  of  Dr.  N,  M.  Saleeby  were  secured 
for  the  survey.  Doctor  Saleeby,  whose  native  tongue  is  Arabic,  was 
a  member  of  the  army  medical  corps,  and  had  been  serving  for  a 
year  and  a  half  among  the  Moros  inhabiting  the  Rio  Grande  and  Lake 
Lanao  regions  in  Mindanao,  where  he  had  established  friendly  per- 
sonal relations  with  many  of  the  more  influential  chiefs  and  priests, 
from  whom  he  had  obtained  originals  or  copies  of  practicall}'  all  existing 
Moro  historical,  religious,  and  legal  documents,  many  of  which  he  had 
translated.  Doctor  Saleeby  was  appointed  assistant  to  the  chief  of 
the  survey  and  put  in  charge  of  the  work  of  the  survey  which  related 
to  Moro  afl'airs.  He  subsequently  gathered  much  important  informa- 
tion relative  to  the  Moros  of  Jolo  and  the  intrigues  which  prevail 
among  them.  The  data  gathered  by  him  will  be  of  the  greatest  impor- 
tance in  establishing  efl'ective  civil  government  in  the  recently  created 
Moro  Province. 

Beginning  in  March,  the  chief  of  the  survey,  accompanied  b}^  Doctor 
Saleeb}",  entered  upon  a  systematic  exploration  of  the  Moro  counti-y 
and  of  the  Sulu  and  Tawi  Tawi  archipelagoes,  Basilan,  and  southern 
Mindanao. 

The  results  obtained  during  the  year  by  the  chief  of  the  survey  will 
be  published  in  the  form  of  brief  monographs  on  "The  Tribes  of  the 
Cordillera  Central  of  Northern  Luzon,"  "Notes  on  the  Ibiiao,'" 
"Notes  on  the  Mang3^an  of  the  Baco  River,  Mindoro,"  "TheSubanon 
of  Western  Mindanao,"  "The  Mohammedan  Tribes  of  the  Philippine 
Islands,"  and  "A  Contribution  to  the  Classification  of  the  Races  of 
the  Philippines." 

To  Dr.  Albert  E.  Jenks,  assistant  chief  of  the  survey,  was  assigned 
the  duty  of  making  a  detailed  study  of  the  Igorrotes  of  Bontoc,  who 
were  believed  to  be  as  t3^pical  of  the  large  group  of  primitive  peoples 
inhabiting  the  mountain  region  of  northern  Luzon  as  any  tribe  which 
could  be  selected.  Doctor  Jenks  spent  five  months  in  Bontoc,  begin- 
ning in  January,  19U3.     Mr.  Charles  Martin,  the  government  pho- 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  609 

tographer,  was  detailed  to  serve  with  him  during  three  weeks  of  this 
period.  He  has  prepared  an  elaborate  and  profusely  illustrated 
monograph  on  the  Bontoc  Igorrot,  which  will  be  published  in  the  near 
future.  He  has  obtained  results  which  will  be  of  great  practical 
importance  in  governing  this  very  primitive  tribe. 

The  work  of  gathering  and  tiling  data  and  information  from  all 
availa])lc  sources  concerning  the  non-Christian  tribes  of  the  Philip- 
pines has  been  systematically  prosecuted  during  the  past  year  by 
Chief  Clerk  Reed,  who  ha^s  made  numerous  translations,  from  Spanish, 
French,  and  German,  of  articles  having  a  bearing  on  the  work  of  the 
surve3\  Mr.  Reed  also  installed  a  small  ethnographical  exhibit  from 
the  survey  at  the  Hanoi  Exposition  in  Indo-China. 

In  June,  1903,  he  was  delegated  to  make  a  stud}^  of  the  Negritos 
inhabiting  the  Zambales  Mountains.  He  secured  a  large  amount  of 
accurate  and  interesting  information  concerning  this  1  ittle-kno  wn  people 
during  his  trip,  which  occupied  a  number  of  weeks.  Later  he  car- 
ried out  a  rapid  surve}^  of  the  province  of  Occidental  Negros,  ascer- 
taining the  character  and  location  of  the  mountain  tribes  of  that 
province. 

The  survey  has  ])een  fortunate  during  the  past  yeav  in  having  the 
services  of  Messrs.  Miller  and  Folkmar,  both  of  whom  are  doctors  of 
philosophy  in  anthropology,  in  preparing  the  ethnological  exhibit  for 
the  Louisiana  Purchase  Exposition. 

Doctor  Miller  has  made  a  trip  across  Mindoro  with  the  primary 
object  of  obtaining  ethnologic  material  from  the  Manga}  an  tribe,  but 
the  portion  of  the  island  traversed  was  found  to  be  almost  uninhabited. 

Doctor  Miller  subsequently  visited  the  country  in  the  vicinity  of 
Bulalacao,  in  the  same  island,  but  his  work  was  interrupted  by  malarial 
fever,  which  necessitated  his  return  to  Manila. 

In  August  he  went  south  to  Surigao,  in  Mindanao,  to  study  the  Negrito 
inhabitants  of  that  province  and  to  ascend  the  Agusan  River,  where  he 
encountered  Manobos  and  Mandayas. 

Doctor  Folkmar  has  been  continuously  occupied  with  physical 
anthropometr}'  in  Bilibid  Prison,  measuring  some  800  individuals, 
among  whom  were  represented  all  of  the  Christianized  Filipino  tribes, 
and  taking  4  photographs  of  each  of  about  400  individuals. 

A  number  of  collectors  have  also  been  delegated  to  visit  different 
regions  in  the  archipelago  and  obtain  information  for  the  surve}-  and 
material  for  the  Louisiana  Purchase  Exposition. 

Several  ver}-  valuable  contributions  to  our  knowledge  of  the  non- 
Christian  tribes  of  the  islands  have  been  made  during  the  past  3'ear  by 
Filipino  and  other  volunteer  workers.  Among  these  may  be  men- 
tioned: 

The  Ifugaos,  by  Senor  Wenceslao  Valera,  Baj'ombong,  N.  V. 

The  Buquidnones  of  Oriental  Negros,  by  Seiior  Santiago  Gonzales. 

The  Negritos  of  Cagayan,  b}'  Senor  Pedro  Daila. 

Manguianes,  by  Sefior  Servulo  Leuterio,  Calapan,  INIindoro. 

Negritos  of  Bataan,  by  Senor  Vicente  Rodriguez. 

Tinguianes,  by  Senor  Emcteru  Molina,  Dolores,  Abra. 

For  further  information  relative  to  the  work  of  the  ethnological 
survc}^  and  for  an  intei'csting  account  of  the  conditions  which  prevailed 
under  the  Spanish  regime  in  territory  inhabited  by  non-Christian 
tribes,  as  well  as  for  an  a<]miral)le  summary  description  of  the  pagan 


610  KEPOllT-s    OF    THE    riVTT-    GOVERNMENT. 

tribes  of  the  IMiilipi)iiu\s,  ivl'oivnco  is  mudo  to  tho  annual  report  of  tlie 
chief  of  the  survey,  which  is  jippended  hereto  and  marked  A[)p{Midix  K. 
KoTK. — It  should  be  noted  tliat  tiic  chief  of  the  sur\ey  has  in  liis 
report  enipUiyed  a  "reformed  spelling"  in  writing  the  names  of  the 
tribes  to  wliich  he  has  referred,  and  in  some  instances  has  departed  so 
far  from  the  spelling-  employed  by  Spanish  authorities,  and  by  the 
Commission  in  its  laws,  as  to  cause  danger  of  confusion  in  the  mind 
of  the  reader.  His  report  would  have  been  improved  by  the  addition 
of  a  list  of  the  tribes  mentioned  therein,  showing  the  names  used  by 
him  and  the  equivalent  names  heretofore  employed  for  the  same  peoples. 
Ver}'  respectfull}', 

Dean  C.  Worcester, 
Secretary  of  tJie  Interior. 
The  PiiiLiiTiNE  Commission, 

Manila,  P.  1. 


REPORT  OF  THE  SECRETARY  OF  COMMERCE 
'AND  POLICE. 


The  honorable  the  Philippine  Commission: 

I  hav^e  the  honor  to  make  the  following-  report  of  the  operations 
during  the  last  twelve  months  of  the  various  bureaus  of  the  depart- 
ment of  commerce  and  police. 

BUREAU   OF   PHILIPPINES   CONSTABULARY. 

It  became  obvious  to  the  Commission  at  an  early  period  in  its  admin- 
istration that  after  the  suppression  by  the  Army  of  the  insurrection 
considerable  time  must  elapse  before  the  ordinary  police  force  of  the 
municipalities  of  the  Archipelago  could  be  relied  on  to  maintain  order. 

The  people  of  the  islands  under  the  Spanish  regime  were  always 
more  or  less  subjected  to  the  incursions  of  bands  of  ladrones,  or  gangs 
of  robbers,  who  preyed  upon  the  peaceable  and  industrious  masses  and 
when  pursued  found  refuge  in  the  jungle  and  mountain  fastnesses.  It 
was  to  be  expected  that  after  more  than  four  years  of  insurrection 
these  bands  would  be  increased  rather  than  diminished.  It  was  incon- 
sistent with  any  proper  idea  of  civil  government  that  the  military 
forces  should  be  used  for  the  purpose  of  suppressing  this  evil.  Aside 
from  this  consideration,  the  expense  involved  in  their  use  was  very 
great,  and,  besides,  the  soldier  was  ill-adapted  by  his  training  to  per- 
form the  functions  of  a  policeman.  To  meet  the  requirements  of  the 
situation,  therefore,  it  seemed  necessary  to  organize  a  constabulary 
force  directly  responsible  to  the  civil  governor. 

It  was  believed  that  after  the  suppression  of  the  insurrection  a  con- 
stabulary organization  could  l)e  created  from  the  natives  of  the  islands, 
commanded  by  Americans,  who  would  be  eiBcient  and  reliable  in  the 
maintenance  of  peace  and  order,  and  as  a  result  the  Philippine  Con- 
sta))ulary,  pursuant  to  legislation  enacted  by  the  Commission,  was 
organized  in  accordance  with  these' views. 

In  the  beginning  the  employment  of  natives  for  such  a  purpose  was 
regarded  as  a  dul)ious  experiment.  There  were  prophets  of  evil  who 
did  not  hesitate  to  foretell  disaster  as  the  result  of  such  a  course  of 
procedure.  It  was  asserted,  both  b}^  friendly  and  unfriendly  critics, 
that  the  native  would  prove  cruel,  inefficient,  and  dislo3^al.  A  careful 
study,  however,  of  oriental  peoples,  and  especially  of  the  Filipino 
people,  caused  the  (commission  to  conclude  that  these  fears  were 
groundless,  and  that  under  Amei'ican  direction  and  leadership  they 
would  not  only  prove  reliable,  but,  in  addition,  could  l)e  made  far 
more  effective  for  service-to  be  performed  than  even  a  greater  number 
of  American  soldiers.     It  seemed  plain  to  the  Commission  that  the 

611 


(312  REPORTS    OK    TIIK    CIVIL    (lOVKRNMENT 

Amorican  people  would  be  adverse  to  a  policy  which  eliminated  the 
native  Filipino  as  a  factor  in  intiintainino-  order.  Not  oidy  did  the  con- 
sideration of  expense  cut  a  most  important  figure,  but,  in  addition, 
continued  occupancy  of  the  islands  under  a  purely  military  regime,  in 
which  the  Filipinos  were  to  have  no  part,  seemed  wholly  opposed  to 
American  ideas.  In  short,  it  was  beli(>V(Hl  that  unless  the  Filii)inos 
themselves  could  be  largely  utilized  in  this  and  all  other  branches  of 
the  government,  American  administration  must  prove  an  expensive 
and  mortifying  failure. 

The  plan  evolved  l)y  constabulary  act  No.  175  of  the  Commission 
for  the  organization  of  the  constabulary  contemplated — 

First.  That  Americans  should,  as  a  general  rule,  be  in  command  of 
the  constabulary  forces  to  be  organized  in  the  provinces  and  that  non- 
commissioned officers  and  privates  should  be  Filipinos;  and 

Second.  That  each  province  should  furnish  its  quota  of  men,  whose 
operations  ordinarily  were  to  be  confined  to  their  province. 

This  latter  principle  involved  a  departure  from  the  rule  which  had 
invariably  controlled  the  English  in  their  colonial  possessions  and  the 
Spaniards  in  their  dealing  with  the  Filipinos,  their  policy  having  ])een 
to  utilize  native  troops  and  constabulary  in  other  sections  than  that 
from  which  the}^  were  drawn,  thereby  taking  advantage  of  supposed 
tribal  prejudices  and,  as  it  was  believed,  removing  the  tendency  to 
dislo3^alty  or  inefficiency  which  would  exist  when  dealing  with  their  own 
immediate  friends  and  neighbors.  The  Commission,  however,  thought 
that  as  against  these  possible  disadvantages  there  were  substantial  ))ene- 
fits  to  be  derived  from  pursuing  the  opposite  course.  It  was  believed 
that  with  proper  treatment  there  need  be  no  fear  of  treachery,  that 
there  was  a  great  advantage  in  having  the  police  operating  in  a  partic- 
ular province  familiar  with  its  terrain  and  the  people  living  therein, 
and  finally  that  in  view  of  the  fact  that  these  people  were  kinsmen 
and  neighbors  of  the  constabulary^  there  would  be  absent  that  disposi- 
tion to  abuse  and  oppression,  which  has  always  been  found  to  exist 
when  native  military  or  constabulary  forces  were  operating  among 
strangers  and  often  hereditar}^  enemies. 

We  believe  that  events  have  proven  the  soundness  of  the  views 
entertained  b}^  the  Commission.  The  past  year  has  fully  tested  the 
constabular}"  organization  and  has  demonstrated  both  its  theoretical 
and  practical  soundness.  The  men  have  proved  obedient,  loj^al,  and 
brave.  The}'  have  been  almost  constantly  engaged  in  cleaning  up  the 
provinces  of  cattle  thieves  and  highway'  robbers.  These  bands  have 
not,  as  a  rule,  been  formidable,  and  almost  without  exception  ma}'  be 
described  as  ordinary  marauders. 

The  people  of  the  islands  have  been  sorely  tried  during  the  past  year 
b}'^  an  epidemic  of  cholera,  the  loss  of  their  draft  animals  by  rinder- 
pest and  other  cattle  plagues,  and,  finally,  the  crops  in  man}'  provinces 
have  again  and  again  been  destroyed  by  locusts.  The  effect  of  all  this 
upon  a  people  just  emerging  from  more  than  five  years  of  insurrection 
can  be  readily  understood,  especially  when  it  is  remembered  that  even 
under  ordinary  conditions  these  robber  bands  have  always  existed  and 
that  the  mass  of  the  people  are  ignorant  and  credulous  and  can  be 
easily  cajoled  or  intimidated  by  the  leaders  of  these  bands.  Besides, 
there  has  been  left  over  as  a  legacy  of  the  insurrection  a  few  insurrecto 
officers  of  more  or  less  ability  and  shrewdness  who  are  unwilling  to 
sink  back  into  the  obscurity  from  which  they  had  emerged  during  the 


OF   THE    PHILIPPINE    ISLANDS,   1900-1903.  613 

insurrection  and  address  themselves  to  peaceful  vocations,  but  prefer 
to  continue  secret  intriguing  and  fomenting  disturbances  in  a  small  way. 

While  in  a  large  majority  of  the  provinces  life  and  property  have 
been  safe  and  peace  and  order  have  prevailed,  as  a  result  of  the  condi- 
tions above  referred  to,  several  instances  have  occurred  when  organized 
bands  of  considerable  magnitude  have  sprung  into  existence.  Some 
of  them  have  claimed  to  have  a  political  object,  others  to  establish 
some  strange  and  fanatical  religious  creed,  and  still  others  without  any 
apparentlj^  well-detined  pua-posc  except  to  live  without  labor  upon  the 
peaceful,  the  inoffensive,  and  the  industrious. 

We  have  had  two  or  three  new  popes,  several  alleged  Sons  of  God, 
and  Virgin  Marys,  together  with  here  and  there  a  leader  who  claimed 
charm- working  powers  and  ability  to  make  his  followers  proof  against 
bullets.  As  a  rule,  however,  they  have  been  able  to  accomplish  nothing 
beyond  the  creation  of  momentar}-  local  disorder,  and  have  been  killed 
or  captured  by  the  constabular3^ 

The  onl}^  bands  which  ha\^e  been  in  the  least  formidable  have  con- 
fined their  operations  to  the  provinces  of  Kizal,  Cavite,  Albay,  Iloilo, 
Cebu,  Surigao,  and  Misamis. 

In  the  province  of  Rizal,  one  San  Miguel,  an  ex-insurrecto  general 
who  had  never  surrendered,  having  a  number  of  guns  left  over  from 
the  insurrection,  was  enabled  to  gather  a  considerable  following  in  the 
mountains  and  surprised  two  small  detachments  of  constabulary^  and 
scouts  stationed  in  remote  barrios  and  possessed  himself  of  their  guns, 
and  with  them  added  to  his  effective  strength.  Colonel  Scott,  first 
assistant  chief  of  constabular}',  however,  promptl}- took  the  field  against 
him  and  b}'  well-directed  operations  succeeded  in  bringing  him  to  bay 
and  killed  him,  together  with  about  60  of  his  followers,  and  captured 
and  dispersed  the  remainder. 

In  the  province  of  Cavite,  Felizardo  and  Montalon,  tw^o  ladrones  who 
were  outlaws  during  the  Spanish  times,  have  from  time  to  time  given 
trouble.  The  constabular}^  of  the  province  have  frequently  come  into 
collision  with  them  and  the  bands  they  have  been  al)le  to  organize,  and 
have  killed,  captured,  or  dispersed  them,  but  the  leaders  have  so  far 
succeeded  in  evading  arrest  and  are  now  concealed  in  the  remote  moun- 
tains of  that  province.  It  is  believed  to  be  only  a  question  of  time 
when  they  will  be  killed  or  captured. 

In  the  province  of  Alba}^  three  ex-insurrecto  officers,  Ola,  Toledo, 
and  Sarria,  having  also  some  40  or  50  guns  which  had  never  been  sur- 
rendered, managed  to  surprise  a  small  detachment  of  constabulary  sta- 
tioned in  the  town  of  Oas  and  captured  theirguns,  about  40  in  number; 
they  also  procured  a  few  additional  guns  belonging  to  the  numicipal 
police  in  several  of  the  towns.  Albay  is  one  of  the  richest  provinces 
in  the  islands,  producing  as  it  does  al)out  one-fourth  of  the  h(Mnp  crop. 
These  outlaws  inaugurated  a  reign  of  terror.  In  many  of  tlie  towns 
the  municipal  authorities,  generally  the  wealthiest  men  in  the  commu- 
nity, were  so  intimidated  as  to  prefer  to  submit  to  the  exactions  of 
these  bandits  rather  than  oppose  them.  They  were  enabled  to  live  off' 
of  the  people  without  difficulty.  Tiie  province  is  largely  mountainous 
and  covered  with  a  lieavy  growth  of  a))acii  and  timber. 

It  was  exceedingly  difticult  foi'  the  constabulary  to  come  in  contact 
with  these  outlaws,  the  latter  receiving  information  from  the  j)eople 
of  the  towns  of  the  movements  of  the  former,  and  thereby  being 
enabled  readily  to  evade  them.     As  this  was  an  intolerable  state  of 


014  REPORTS    OF    THE    CIVIL    GOVERNMENT 

thino-s,  which  could  not  be  prolong-ed  without  iinmcnso  damage  to  the 
pro\iuco,  it  was  deteriiiinecf  to  draw  in  the  jxH^ple  from  the  remote  and 
outlying  barrios  pursuant  to  the  provisions  of  Act  No.  781,  which  author- 
izes this  step,  and  thereby  cut  oti'  the  source  of  supplies  of  the  outlaws. 
This  course  was  pursued  and  the  people  of  a  number  of  the  municipal- 
ities were  concentrated  within  certain  detined  zones  which  were  largo 
enough  to  enable  them  to  work  at  hemp  making  and  obtain  food  sup- 
plies. They  were  thus  concentrated  for  several  months.  Wherever 
necessary,  rice  was  furnished  them  for  work  done,  so  that  sickness  or 
suffering  from  hunger  was  prevented.  The  result  of  this  policy  was, 
that  a  few  weeks  since,  these  outlaws,  having  been  unable  to  obtain 
supplies  and  being-  constantly  kept  on  the  run  I)}"  the  constal^ulary  and 
scouts  concentrated  in  the  province,  were  forced  to  come  in  and  sui-- 
render  themselves  and  their  arms.  The  inhal^itants  of  the  province 
who  had  been  thus  concentrated  were  permitted  to  return  to  their 
homes. 

The  effect  of  these  operations  was,  temporarily,  largel}^  to  reduce 
the  output  of  hemp  and  thereby  inflict  considerable  loss  upon  the 
province.  Alba}'  is  now  entirely  cjuiet  and  order  prevails;  while  the 
temporary  loss  occasioned  by  reduction  of  the  hemp  output  was  very 
considerable,  the  effect  of  the  energetic  methods  pursued  has  been 
undoubtedlj^  most  beneficial,  and  it  is  believed  will  be  permanent  in 
character.  The  people  are  now  busily  engaged  in  gathering  hemp  and 
preparing  it  for  market  and  a  larg-er  amount  is  being  brought  into  the 
towns  for  sale  than  ever  before  in  the  history  of  the  province.  It  may 
be  further  stated  that  nearly  all  the  outlaws  are  either  dead  or  in 
Bilibid  prison. 

In  the  province  of  lloilo  there  have  been  several  roving  bands 
engaged  in  cattle  stealing  on  an  extensive  scale  and  raiding  remote  and 
unprotected  villages.  They  have,  however,  been  gradually  killed  or 
captured  through  the  energetic  course  of  the  constabular3\ 

In  the  province  of  Cebu  there  was  an  organization  of  what  is  known 
as  Pulujanes,  a  combination  of  religious  fanatics  and  ladrones  that 
assumed  considerable  proportions  and  succeeded  in  repulsing  a  small 
band  of  constabulary  who  first  attacked  them,  killing  Lieutenant 
Walker,  their  commander.  Lieutenant-Colonel  Taylor,  assistant 
chief  of  constabularj',  however,  speedily  concentrated  a  force  of  con- 
stabulary and  attacked  and  completely  routed  them,  killing  many  of 
them  and  capturing  or  dispersing  the  remainder.  There  have  been  no 
other  disturbances  of  any  sort  in  Cebu. 

Serious  disturbances  also  occurred  in  the  provinces  of  Surigao  and 
Misamis,  island  of  Mindanao.  These  two  provinces  are  the  most  remote 
in  the  Archipelago.  While  inhabited  principally  by  Christian  Fili- 
pinos the  great  majority  of  them  are  extremely  ignorant  and  inclined 
to  fanatical  superstition.  The}^  come  in  close  touch  on  their  southern 
boundery  with  the  Moros  and  other  non-Christian  tribes. 

In  the  latter  part  of  March  there  was  quite  a  large  number  of  men 
charged  with  crime  confined  in  the  provincial  jail  at  Surigao,  and 
among  them  one  Concepcion,  a  bandit  of  some  local  note,  who  suc- 
ceeded in  effecting  their  escape  and  fled  to  the  adjacent  mountains. 
Captain  Clark,  senior  inspector  of  constabulary  of  the  ^Ji'ovince,  seems 
to  have  been  careless  and  unsuspicious  of  any  danger  of  attack  from 
them.  However,  Concepcion  and  his  men  came  into  the  town  of  Surigao 
undetected,  and  while  the  constabulary  were  at  dinner,  rushed  the 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  615 

cuartel,  where  there  were  only  a  couple  of  guards  stationed,  and  thus 
secured  all  the  arms  of  the  eonstabular3\  The  town  people  of  Surigao 
took  no  part  with  Concepcion,  Captain  Clark,  who  was  at  his  house 
some  '200  3'ards  awa}',  at  once  proceeded  to  the  scene,  although  only 
armed  with  a  revolver,  and  shot  two  of  the  assailants,  but  was  in  turn 
himself  cut  down  and  killed.  This  gave  the  attacking-  force  about  150 
weapons — rifles,  shotguns,  and  revolvers — and  left  the  town  and 
province  without  an}-  effective  force  of  constabularj",  as  the  latter 
with  their  commander  killed  and  themselves  disarmed  could  offer  no 
resistance.  The  provincial  treasurer,  Captain  Kelly,  and  a  few  other 
Americans  who  were  in  the  provincial  building,  with  such  arms  as 
they  could  secure  stood  off'  the  outlaws,  who  by  that  time  had  com- 
plete possession  of  the  town,  and  the  telegraph  office  being  in  the 
provincial  building  were  able  to  telegraph  to  Manila  and  Cebu  an 
account  of  what  had  happened.  There  was  an  army  post  at  lligan,  in 
the  adjoining  province  of  ]V[isamis,  a  comparatively  short  distance  from 
Surigao.  The  civil  governor,  on  receipt  of  information  of  what  had 
happened  and  in  view  of  the  proximity  of  military  forces  to  the 
scene,  requested  that  the  militar}^  commander  of  the  district  take 
charge  of  matters  and  proceed  to  suppress  disorder,  and  accordingly^ 
General  Lee  and  afterwards  General  Wint  took  control  of  affairs, 
placing  Colonel  Meyer,  Eleventh  Infantry,  U.  S.  Army,  in  imme- 
diate charge  and  command.  In  the  meantime  Lieutenant-Colonel 
Tajdor,  of  the  constabulary,  began  rapidly  to  throw  constabulary- 
detachments  into  Surigao,  so  that  within  forty-eight  hours  after  the 
disaster  there  was  quite  a  number  of  soldiers  and  constabularj'  in  posi- 
tion to  take  the  field,  which  they  did  at  once  and  began  a  sj^stematic 
search  and  pursuit  of  outlaws  which  resulted  in  the  killing  or  capturing 
of  most  of  them  in  short  order.  Nearly  all  of  the  captured  weapons  were 
recaptured.  There  was  at  this  time  quite  a  feeling  of  dissatisfaction 
and  unrest  in  both  of  the  provinces  of  MLsamis  and  Surigao  at  the 
time  of  these  occurrences,  due  to  the  taking  of  the  census  and  the 
prevalence  of  the  idea  among  the  ignorant  that  their  property  was 
being  scheduled  in  order  to  tax  or  confiscate  it.  As  soon  as  the  town 
of  Surigao  was  captured,  as  above  detailed,  a  small  band  of  the  people 
of  Misamis  took  the  field  under  one  Flores,  but  he  was  also  soon 
disposed  of  by  the  military  forces. 

The  events  thus  narrated  chronicle  the  most  serious  disaster  which 
has  happened  to  the  constabular}-  since  its  organization.  It  could 
not  have  occurred  but  for  the  overconfidence  ancl  consequent  careless- 
ness of  the  senior  inspector  who,  however,  did  all  that  a  brave  man 
could  do  to  repair  his  mistake  b}'  the  sacrifice  of  his  life. 

I  have  thus  given  a  brief  epitome  of  the  most  serious  instances  of 
resistance  to  constituted  authorit}^  which  have  occurred  during  the 
past  year.  With  perhaps  the  exception  of  San  Miguel,  in  Rizal 
Province,  none  of  them  had  the  slightest  political  significance.  Of  all 
the  leaders  who  have  figured  as  above,  San  Miguel  was  the  only  one 
who  did  not  have  a  previous  record  as  an  ordinary  robber  and  most  of 
them  were  fugitives  from  justice.  San  Miguel  claimed  to  be,  and 
doubtless  was,  the  head  of  a  movement  semipolitical  in  character  and 
which  had  its  source  in  the  plotting  of  a  few  reckless  and  unscrupu- 
lous men  living  in  the  city  of  Manila  and  who  were  leaders  in  the 
Nacionalista  party,  having  for  its  ostensible  object  the  ultimate  inde- 
pendence of  the  Filipino  people  through  "peaceful  methods,"  what- 


016  EEPORTS    OF    THE    CIVIL    GOVERNMENT 

ever  that  may  moan.  Probably  the  real  director  of  the  movement 
was  Dr.  Doniinador  (lonicz,  a  Filipino  pliysician,  a  Spanish  subject 
married  to  a  Spanish  woman,  who  had  ])ecn  a  surgeon  in  the  Spanish 
army  until  a  few  months  l)efore,  when  he  left  Madrid,  as  has  been 
alleged,  under  a  cloud,  and  came  to  the  Philippine  Islands,  passed  the 
custom-house  under  an  assumed  name,  looking  for  trouble.  No  better 
type  of  a  professional  agitator  and  blatherskite  could  well  be  found, 
lie  at  once  posed  as  a  friend  of  the  lal)oring  man  and  liecame  the  suc- 
cessor of  Isabella  do  los  Reyes,  who  had  l)ecn  sent  to  jail  for  unlawful 
practices  in  connection  with  a  labor  organization  of  which  he  was  the 
founder  and  head.  Gomez  also  became  the  president  of  the  Naciona- 
lista  i^arty  and  started  a  newspaper  called  Los  Obreros.  Thus 
equipped,' he  was  read}^  for  business;  proceeded  to  enroll  members  of 
his  so-called  labor  organization,  notonl}'  in  Manila,  but  throughout  the 
provinces,  and  to  levy  contributions,  all  of  which  went  into  his  own 
pocket  without  question  or  supervision  by  anyone. 

He  and  his  colleagues  began  making  speeches,  writing  articles,  and 
presenting  seditious  plays  to  the  natives,  tending  to  stir  them  up  again 
to  the  point  of  insurrection.  He  was  in  communication  with  San  Miguel, 
Felizardo,  and  Montalon,  of  the  outlaws  already  referred  to,  and  encour- 
aged them  to  continue  resistance.  It  finally  became  necessary  to  arrest 
and  prosecute  him  for  these  seditious  actions  and  utterances,  and  also 
for  misappropriation  of  money  belonging  to  the  labor  vuiion  of  which 
he  was  the  head.  He  was  convicted  and.  sentenced  to  imprisonment 
for  a  term  of  four  years,  and  is  now  being  tried  upon  still  another 
charge.  This  determined  action  by  the  authorities,  together  with  the 
operations  of  the  constabulary,  put  an  end  to  this  so-called  political 
movement,  if  it  can  be  thus  dignified. 

While  the  labors  of  the  constabulary  during  the  year  have  been  con- 
stant and  arduous,  as  has  been  shown,  it  must  not  be  inferred  from 
what  has  been  said  that  there  has  been  any  considerable  or  formidable 
disorder  except  in  the  provinces  above  specifically  referred  to;  on  the 
contrary,  the  fact  is  that  in  the  large  majorit}^  of  the  provinces  peace 
and  order  have  prevailed  unbroken  and  life  and  property  have  been 
safe,  probably  as  much  so  as  in  most  sections  of  the  United  States. 
American  officials  and  private  individuals  have  gone  about  the  country 
generall}^  unarmed  and  without  molestation.  At  the  time  of  this 
writing  the  islands  are  perhaps  more  quiet  than  ever  before  in  their 
history.  The  speedy  killing  or  the  arrest  and  punishment,  through 
the  medium  of  the  courts,  of  outlaws  and  other  violators  of  the  law  it 
is  believed  has  already  produced  a  most  beneficial  efi'ect  and  has  borne 
in  upon  the  minds  of  those  likely  to  in  the  future  depart  from  the 
paths  of  peace  the  knowledge  that  such  a  course  is  both  unprofitable 
and  dangerous.  Perhaps  the  most  important  result  of  these  opera- 
tions has  been  the  encouragement  it  has  given  the  conservative  and 
law-abiding  people,  who  are  in  the  majority,  to  denounce  ofl:enders  and 
aid  in  their  apprehension.  Heretofore  they  have  been  inclined  to 
compound  with  violators  of  the  law  and  quietly  submit  to  their  depre- 
dations, but  now,  appreciating  the  vigorous  eflorts  of  the  government 
for  their  protection,  are  giving  valuable  assistance.  In  many  instances 
the}^  have  organized  volunteer  associations  and  have  gone  out  with  the 
constabulary  acting  as  guides,  and  in  some  instances  take  themselves 
the  initiative  against  the  ladrones  and  kill  or  capture  them.  I  am  glad 
to  say  that  this  spirit  is  steadily  growing  and  when  it  becomes  general, 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  61 7 

ladronisin,  which  has  so  long  been  the  curse  of  this  people,  is  at  an  end. 
In  the  course  of  their  operations  the  constabularj^  have  gathered  in 
nearlj^  all  of  the  firearms  which  had  not  theretofore  been  surrendered  by 
the  insurrectos  and  which  still  remained  in  the  hands  of  lawless  men. 
The  details  of  the  operations  of  the  constabulary  will  be  found  set  out 
in  full  in  the  accompanj'ing  report  of  Brig.  Gen.  Henry  T.  Allen, 
chief  of  the  Philippines  Constabulary,  and  of  Colonels  Scott,  Baker, 
Bandholtz,  and  Taylor,  assistant  chiefs. 

The  act  of  Congress  approved  January  30,  1903,  authorized  the 
detail  of  companies  of  scouts  to  cooperate  with  the  Philippines  Con- 
stabulary when  detailed  for  that  purpose  by  the  commanding  general 
upon  the  request  of  the  civil  governor,  and  to  be  under  the  command 
for  tactical  purposes  of  the  chief  and  assistant  chiefs  of  the  Philippines 
Constabulary,  who  are  officers  of  the  United  States  Army.  This  act 
was  timely  and  its  effect  has  been  most  beneficial.  The  Philippine 
Scouts  are  all  Filipinos  commanded  b_v  Americans  selected  from  non- 
commissioned ofiicers  of  the  Regular  Army  or  from  civil  life,  and  form 
a  part  of  the  general  military  establishment  in  the  islands.  As  a  result 
it  was  possible  to  supplement,  wherev^er  necessary,  the  constabulary 
with  these  scouts  or  such  of  them  as  were  needed. 

Majs.  Gen.  George  W.  Davis  and  James  F.  Wade,  the  division  com- 
manders, have  invariably,  upon  the  request  of  the  civil  governor, 
detailed  scout  companies  for  work  with  the  constabulary.  There  have 
been  thus  detailed  during  the  year  29  companies  of  Philippine  Scouts, 
who  have  been  under  the  command  of  the  chief  and  assistant  chiefs  of 
the  constabulary.  They  are  entitled  to  their  full  share  of  credit  for 
whatever  has  been  done  in  bringing  about  the  present  very  satisfactory 
conditions  as  to  peace  and  order. 

Some  opposition  has  been  manifested  in  military  circles  to  this  act 
of  Congress  which  thus  places  the  scout  companies  under  the  control 
of  the  chief  and  assistant  chiefs  of  the  constabulary.  It  has  been 
asserted  that  the  act  is,  to  finy  the  least  of  it,  unadvisable  and  is  in 
some  wa3"s  a  reflection  upon  the  arm}"  ofiicers  ordinaril}'  having  these 
scout  companies  under  their  command,  and  that  if  the  scouts  were 
needed  for  the  purpose  of  maintaining  order  they  should  be  under  the 
control  and  direction  of  the  commanding  ofiicers  of  the  department 
and  their  subordinates. 

General  Davis,  in  his  report  covering  the  period  of  military  opera- 
tions in  the  Philippines  from  October  1,  1902,  to  July  26, 1903,  voices 
this  sentiment,  as  follows: 

It  is  greatly  regretted  that  political  considerations  seemed  to  require  the  captains, 
field  officers,  and  generals  of  the  forces  here  to  occupy  the  mortifying  position  which 
the  execution  of  this  law  involved,  viz,  to  })e  forbidden  to  lead  into  action  the  troops 
of  their  command  whom  they  had  organized,  instructed  for  years,  brought  to  a  high 
state  of  efficiency,  and  whose  material  wants,  mider  other  leadership,  they  must  still 
supply. 

It  does  not  seem  to  me,  however,  that  this  view  of  the  matter  is 
sound.  In  the  first  place,  the  act  of  Congress  gives  the  rank  of  briga- 
dier-general and  colonel,  respectively,  to  the  chief  and  assistant  chiefs 
of  the  consta})ularv,  detailed  for  that  duty  from  the  Regular  Army. 
The  responsibility  and  importance  attached  to  these  positions  well  war- 
rant the  rank  thus  given.  Their  detail  is  made  by  the  Secretary  of 
War.  It  is  not  perceived  why,  when  the  public  interest  demands  it, 
a  temporary  detail  of  Philippine  Scouts,  for  service  under  these  con- 


618  REPORTS    OF    TRK    CIVIL    GOVERNMENT 

stabulary  oificcrs!,  is  in  any  way  a  retiection  upon  the  j>'cncral  officer.s  who, 
prior  to  the  detail,  commanded  them.  It  is  simpl}^  a  temporary  transfer 
of  eommand  from  one  lleo-ular  Army  officer  to  another.  Whatever  of 
vahie  there  is  accruing-  by  reason  of  the  services  of  the  scouts  inures  to 
the  credit  of  the  Army.  The  Philippine  Scouts  have  only  a  compan}^ 
orii-anization,  they  have  never  had  a  battalion  or  reg-imental  forma- 
tion except  that  several  of  the  companies  have  ])een  thrown  into  a 
battalion  under  the  conumind  of  Major  Carrington,  U.  S.  Army,  to  bo 
sent  to  the  Louisiana  Purchase  Exposition  at  St.  Louis.  The  chief 
and  assistant  chiefs  of  the  constabulary  are  officers  of  mature  age  much 
senior  in  rank  to  the  officers  immediateh^  in  command  of  scout  com- 
panies. Upon  what  principle  the  latter  have  an}^  just  cause  for  com- 
plaint is  not  perceived,  as  they  still  remain  in  command,  nor  is  it  easy 
to  see  upon  what  principle  the  general  officer  who  commanded  these 
scouts  prior  to  the  detail  is  subjected  to  an}^  indignit}^  unless  it  be  that 
of  taking  them  from  his  command  and  placing  them  under  another 
officer  of  equal  rank.  If  when  thus  detached  these  companies  were  to 
be  held  together  en  masse  or  in  large  bodies  and  engaged  in  ordinary 
military  operations  there  might  ))e  some  force  in  the  objection  to  their 
being  thus  detailed;  but  this  is  not  the  case,  as  they  are  used  like  the 
constabulary,  in  small  detachments  for  police  purposes.  It  is  the 
exception  that  either  a  scout  or  a  constabulary  officer  has  under  his 
immediate  command  as  many  men  as  a  full  company.  It  would  there- 
fore be  impossible  for  the  general  of  the  division  or  his  subordinate 
generals,  from  whose  command  these  scouts  are  temporarily  taken,  to 
command  them  unless  the  whole  constabulary  force  in  a  given  district 
were  turned  over  to  them.  If  this  were  done,  chief  and  assistant 
chiefs  of  constabulary  might,  with  far  more  propriety,  insist  that  they 
were  being  suspended  as  to  their  functions  and  thus  discriminated 
against.  Undoubtedly  if  there  were  an3^thing  like  a  general  uprising 
which  called  for  the  intervention  of  the  military  forces  the  scouts  would 
be  under  the  command  of  their  own  officers,  and  doubtless  also  the  entire 
constabulary  would  be  placed  under  the  direction  of  the  division  com- 
mander; but  this  is  not  the  situation.  There  has  not  been  at  any  time 
or  in  an}'  instance  an3^thing  more  to  deal  with  than  a  local  band  of  out- 
laws, generally  few  in  number  and  easily  disposed  of  when  overtaken. 
It  has  been  more  a  question  of  guarding  remote  outlying  towns  and 
barrios  against  the  raids  of  these  marauders  and  of  overtaking  and  kill- 
ing or  capturing  them  as  speedly  as  possible.  AYhile  the  constabulary 
forces  alone  are  adequate  to  perform  this  duty  it  could  be  done  very 
much  more  expeditions!}'  and  economically  by  the  two  bodies  acting 
in  cooperation.  Prior  to  the  passage  of  this  act,  on  several  occasions 
the  chief  of  constabulary  in  order  to  meet  an  emergency  had  concen- 
trated in  several  of  the  provinces  a  considerable  constabulary  force, 
but  thus  to  concentrate  constabulary  involved  bringing  detachments 
from  various  other  provinces  more  or  less  remote;  transportation  is 
expensive  and  slow.  To  be  able  to  call  upon  scout  companies,  stationed 
near  any  particular  locality  in  which  there  is  need,  for  reinforcing  the 
local  constabulary  force  is  simply  to  aid  the  civil  authorities  in  prop- 
erly and  cheaply  suppressing  disorder.  Congress  doubtless  had  this 
in  view  when  it  enacted  the  law  complained  of. 

Again,  it  is  to  be  observed  that  it  would  be  misleading  and  therefore 
objectionable  if  every  time  a  scout  company  were  needed  the  civil 
governor  were  required  to  certify  to  the  commanding  general  of  the 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  619 

division  that  he  was  unable  with  the  force  at  his  command  to  main- 
tain order  in  any  given  locality,  and  that  he  required  the  aid  of  the 
militaiy  forces  for  this  purpose;  and  it  would  be  especially  objectionable 
if  as  a  condition  precedent  to  the  detail  of  a  scout  company  it  were 
necessary  to  turn  oyer  a  large  section  of  constabulary  to  a  military 
commander  and  suspend  all  the  ordinarj'  functions  of  civil  government 
in  the  disturbed  district.  The  moral  effect  of  such  a  course  would  be 
disastrous,  in  that  it  would  indicate  the  inability  of  the  civil  authorities 
to  cope  with  any  situation  ot-  real  difficulty  and  its  complete  depend- 
ency upon  the  military  arm.  It  would  have  a  tendency  to  produce 
the  impression  that  the  civil  authorities  liave  no  confidence  in  the  native 
police  and  dai  i  not  rely  upon  them  in  any  emergency,  thereby  destroy- 
ing their  morale,  and,  what  would  be  still  more  disastrous,  convincing 
the  mass  of  the  people  of  our  entire  lack  of  faith  in  them  and  in  their 
willingness  to  cooperate  with  us  in  maintaining  order. 

TELEGRAPH   DIVISION. 

Act  No.  461,  enacted  September  12, 1902,  provided  for  the  organiza- 
tion of  the  telegraph  division  of  the  bureau  of  Philippine  Constabulary. 
Logically,  as  this  division  is  engaged  in  the  transmission  of  intelli- 
gence, it  would  seem  to  belong  to  the  bureau  of  posts,  but  considera- 
tion showed  that  it  would  be  necessary,  if  it  were  so  placed,  to  incur 
a  much  greater  expense  than  if  placed  in  the  bureau  of  constabular}-, 
as  the  latter  was  in  a  position  to  use,  for  the  purposes  of  transporta- 
tion of  material,  maintenance,  etc.,  its  ordinary  machinery  with  little 
increased  expense,  while,  had  it  been  placed  under  the  bureau  of  posts, 
an  independent  organization  for  this  purpose  would  have  been  necessary. 

As  an  aid  to  military  operations  during  the  period  of  insurrection  it 
was  found  necessary  to  construct  telegraph  and  telephone  lines  through 
the  instrumentality  of  the  Signal  Corps  of  the  Army,  connecting  army 
headquarters  at  Manila  with  nearly  every  municipality  in  the  islands 
in  order  that  the  militaiy  authorities  might  be  in  touch  with  the 
numerous  detachments  of  troops  garrisoning  these  muncipalities  or 
engaged  in  operations  contiguous  thereto.  Some  8,000  miles  of  wire 
and  cable  were  thus  laid.  As  peace  was  established  and  the  garrisons 
of  these  outl3"ing  municipalities  were  drawn  into  larger  stations,  many 
of  the  established  telegraph  and  telephone  lines  became  no  longer  use- 
ful from  a  military  standpoint  and  were  abandoned.  They  were,  how- 
ever, of  nuich  value,  indeed  indispensable,  for  the  proper  canying  on 
of  the  civil  which  succeeded  the  militar}'^  government  and  also  for 
commercial  uses.  The  telegraph  division  was  therefore  organized  to 
meet  these  requirements.  It  has  been  engaged  in  taking  over  and 
repairing  these  linos  from  the  Signal  Corps  as  fast  as  has  been  prac- 
ticable considering  available  resources. 

The  expressed  purpose  of  the  military  authorities  has  been  to  turn 
over  all  the  telegraph  and  telephone  lines  of  the  islands  to  the  insular 
government,  but  the  latter,  owing  to  its  inability  to  obtain  skilled 
operators,  has  up  to  this  time  been  able,  through  the  telegraph  divi- 
sion, to  assume  charge  of  only  a))Out  1,1)00  miles  of  telephone  lines 
with  155  offices,  and  553  miles  of  telegraph  and  cable  lines  with  23 
offices.  Owing  to  the  immense  demand  for  competent  telegraph 
operators  in  the  United  States  it  has  been  almost  impossible 
at  anything    like    reasonable    prices    to    obtain    needed    American 


620  REPORTS    OF    THE    CIVIL    (JOVERNMKNT 

oporators  to  take  the  place  of  the  men  of  the  Signal  Corps.  Even 
had  Ainerioan  operators  been  procurable  the  expense  would  have 
been  beyond  our  means.  In  view  of  these  conditions,  and  also  its 
o-eneral  policy  in  that  regard,  the  insular  government,  contempora- 
neously with  the  organization  of  the  tidegraph  division,  thiough  the 
bureau  of  education,  organized  schools  of  telegraphy  at  Manila,  lloilo, 
Vigan.  and  San  Isidro  for  the  training  of  native  operators.  These 
schools  have  done  and  are  doing  satisfactory  work,  and  from  thi  ni  18 
natives  have  already  graduated  and  are  now  on  duty  in  the  telegi'aph 
division.  This  lumiber  w^ill  be  steadily  and  rapidly  increased,  as  the 
schools  are  largely  attended.  At  the  same  time  that  the  students  are 
being  instructed  in  telegraph}"  they  are  also  being  taught  the  English 
language.  The  natives  take  readily  to  work  of  this  character,  and  it 
is  believed  from  this  source  of  supply  will  be  drawn  in  the  not  remote 
future  an  adequate  supply  of  telegraph  operators  at  moderate  cost, 
who,  under  the  direction  of  skilled  American  inspectors  and  chiefs  of 
division,  will  be  able  to  give  a  satisfactor}'^  service. 

CrVIL    SUPPLY    STORE. 

The  bureau  of  constabulary  has  also  imposed  upon  it  the  duty  of  run- 
ning a  supply  store,  through  which  is  furnished  not  only  the  con- 
stabulary forces,  but  also  all  civil  employees  of  the  government  outside 
the  city  of  Manila.  This  is  rendered  necessary  by  reason  of  the  ina- 
bility of  American  provincial  officers,  school-teachers,  and  other  civil 
servants  in  the  provinces  to  obtain  such  food  as  they  had  been  accus- 
tomed to  and  which  is  essential  to  their  health  and  comfort.  While 
there  is  no  natural  relation  between  this  service  and  the  legitimate 
duties  of  the  constabulary  it  was  deemed  advisable  to  place  it  in  this 
bureau  for  economic  reasons.  The  constaljulary  bureau  had  already 
organized  and  in  operation  a  commissary  for  the  supply  of  its  own 
men,  and  the  addition  of  the  duty  of  furnishing  supplies  to  other  gov- 
ernment officials  involved  a  comparatively  small  increase  of  labor  and 
expense  upon  the  constabulary  supply  division. 

BUREAU   OF   COAST   GUARD   AND   TRANSPORTATION. 

This  bureau,  created  by  Act  No.  266,  has  under  its  control  light- 
house maintenance  and  construction,  and  is  also  charged  with  the  duty 
of  operating  a  fleet  of  small  government  vessels  called  coast  guard 
cutters,  IT  in  number.  These  vessels  are  used  in  transporting  insular, 
provincial,  and  municipal  officials  and  employees,  government  sup- 
plies, carrj'ing  the  mails,  and  preventing  smuggling.  The  bureau  has 
also  under  its  control,  in  so  far  as  relates  to  the  selection  of  officers 
and  crew,  the  furnishing  of  supplies  and  keeping  in  repair  a  number 
of  small  seagoing  launches,  used  by  the  constabulary  and  provincial 
officials  in  the  performance  of  their  duty. 

One  of  the  principal  difficulties  with  which  the  Commission  has  had 
to  contend  has  ])een  the  lack  of  means  of  speedy  and  cheap  conununi- 
cation  between  the  various  towns  and  islands  of  the  Archipelago. 
Internal  communication  in  the  larger  islands  is  slow  and  difficult  because 
of  lack  of  railroads  and  highways,  and  between  the  islands  because  of 
irregularity  and  uncertainty  in  the  movements  of  merchant  vessels. 
The  great  mass  of  the  population  at  present  is  found  along  the  coast 


OF   THE    PHILIPPINE    ISLANDS,    1900-1903.  621 

line,  the  interior  of  the  islands  being  as  a  rule  sparsely  populated. 
This  is  not  due  to  any  lack  of  fertilit}'  in  the  soil  of  the  interior,  or  in 
its  lack  of  suitabilit}^  for  cultivation  and  habitation,  but  solely  to  the 
difficulties  of  transportation  and  intercommunication;  nor  will  there 
be  an}'  substantial  change  in  this  regard  until  the  larger  islands  are 
opened  up  through  the  medium  of  railroads.  The  Commission,  there- 
fore, appreciating  the  importance  and,  indeed,  the  absolute  necessity 
of  having  some  means  of  easy  and  reliable  communication  with  all 
coast  points  in  the  islands,  determined  to  purchase  a  sufficient  number 
of  small  vessels  for  that  purpose. 

The  bureau  was  organized  immediately  after  the  passage  of  the  act 
with  Commander  (now  Captain)  A.  Marix,  U.  S.  Navy,  in  charge. 

After  careful  study  of  the  requirements  of  the  situation,  both  as  to 
the  number  and  character  of  the  vessels  needed,  it  was  determined 
to  purchase  10  single-screw  composite  vessels  having  a  length  of 
148  feet;  beam,  28  feet;  maximum  draft,  9^  feet;  minimum  draft,  8 
feet;  displacement,  100  tons;  deck  house  for  the  accommodation  of 
12  passengers,  to  be  of  hard  wood;  hull  to  be  of  teak  wood  sheathed 
with  copper,  and  an  economical  speed  of  10  knots;  and  5  vessels  having 
twin  screws;  length,  138  feet;  beam,  21  feet;  maximum  draft,  8  feet; 
minimum  draft,  7i  feet.  They  were  all  to  have  steel  frames,  teak 
hulls,  and  copper  sheathing,  with  accommodations  for  passengers. 
Each  of  these  vessels  was  to  have  a  freight-carrj'ing  capacity  of  about 
150  tons,  and  to  be  able  to  keep  the  sea  in  anj^  weather. 

After  soliciting  bids  in  the  United  States,  Japan,  and  China,  con- 
tracts were  let  for  the  10  first-named  single-screw  vessels  to  Farnham, 
Boyd  &  Co. ,  shipbuilders,  Shanghai,  they  being  the  lowest  and  best 
bidders;  and  for  the  five  twin-screw  vessels  contracts  were  let  to  the 
Uraga  Dock  Company,  near  Yokohama,  Japan. 

The  Commission  would  have  much  preferred  to  give  these  contracts 
to  American  shipbuilders,  but  the  only  bid  received  from  that  quarter 
was  about  twice  as  high  as  from  Farnham,  Boyd  &  Co.  and  the  Uraga 
Dock  Compan}',  a  difference  so  great  as  to  impel  the  Commission, 
notwithstanding  its  preference  for  American  shipbuilders,  to  let  the 
contracts  as  stated. 

Farnham,  Boyd  &  Co.  delivered  the  vessels  which  they  had  agreed 
to  build  in  due  course.  They  were  on  the  whole  very  satisfactory, 
being  built  upon  an  admirable  model,  were  very  substantial,  and  con- 
siderably faster  than  the  contract  required.  We  were  not  so  fortunate 
with  the  Uraga  Dock  Company.  Although  highly  recommended  as 
coinpetent  and  reliable  shipbuilders,  events  did  not  justify  their  repu- 
tation. 

The  insular  government  selected  an  inspector  of  reputed  capacity 
and  integrity  to  ])e  on  hand  during  the  construction  of  the  vessels  to 
scc_  that  they  came  up  in  every  particular  to  contract  requirements, 
which  were  specific  and  rigid.  He,  however,  proved  to  be  either  incom- 
petent or  faithless,  and,  indeed,  both.  He  was  induced  by  the  com- 
pany to  accept  as  up  to  contract  requirements  two  of  the  vessels  which 
were  first  completed.  When  they  arrived  in  Manila  it  was  found  that 
their  model  was  not  good;  that  the  vessels  trimmed  badly,  being  down 
by  the  head,  and  as  a  result  were  una])le  to  make  the  contract  speed 
in  anything  like  a  heavy  sea;  and  also  drew  too  nuich  water.  There 
were  other  minor  defects  which  need  not  ))e  oiunncrated.  The  other 
three  vessels  were  still  in  course  of  construction.    Pursuant  to  the  con- 

2:5181—04 10 


622  REPORTS    OK    THE    CIVIL    OOVERNMENT 

tract  partial  paj'^ments  had  been  made  at  certain  wtagcs  of  completion 
of  the  vessels  on  the  certificate  of  the  inspector.  When  the  defects 
above  referred  to  were  discovered  there  had  l)cen  paid  on  the  five  vessels 
an  agtrrcg-ate  sum  of  $214,789.  Tl>.  We  held,  however,  as  a  guarantee 
of  faithful  performance  the  ciieck  of  the  company  for  $31,000.  The 
inspector  who  was  thus  derelict  was  discharoed  and  a  competent  man 
put  in  his  place.  Investigation  showed  that  the  three  vessels  which  were 
in  the  course  of  construction,  by  reason  of  the  faultiness  of  their  model 
and  other  defects,  would  not  come  up  to  contract  requirements,  nor 
would  they  meet  the  purpose  for  which  they  were  especially  designed, 
although  they  would  have  doubtless  proven  fairly  good  vessels  with 
some  minor  changes  and  modifications. 

In  view  of  all  this  the  Uraga  Dock  Company  was  notified  that  the 
three  remaining  vessels  would  not  be  accepted  nor  would  we  pay  any 
further  sums  of  money  until  they  were  delivered  in  Manila  for  trial 
and  shown  to  be  up  to  contract,  and  that  unless  this  was  agreed  to  we 
should  insist  on  canceling  the  contract.  The  companj^  sent  one  of  its 
chief  officials  to  Manila  for  conference.  He  claimed  that  the  most 
vital  of  the  defects  complained  of  were  due  to  changes  made  in  the 
original  plans  by  verbal  direction  of  Captain  Marix  and  our  inspector, 
and  consequently  that  they  were  not  to  l)lame  in  the  premises.  We 
became  satisfied  that  the  vessels  could  not  be  made  to  fully  answer  our 
purpose,  and  for  reasons  which  need  not  be  here  further  detailed  and 
enumerated,  we  Were  indisposed  to  continue  the  contract.  Finally, 
after  considerable  negotiation,  as  litigation  in  Jaj^an,  under  all  the  cir- 
cumstances, seemed  unprofitable  and  dubious,  it  was  decided  that  it 
was  in  the  public  interest  to  make  a  final  settlement  of  the  matter, 
which  was  done  by  agreeing  that  the  insular  government  should  be 
released  from  obligation  to  take  the  three  remaining  vessels,  then  par- 
tially completed,  the  company  to  surrender  to  us  the  certified  check 
for  $31,000,  which  w^as  held  by  the  insular  treasurer,  and  to  retain  all 
moneys  which  had  been  paid. 

The  net  result  of  this  transaction  was  the  loss  of  about  $30,000  to 
the  insular  government,  l>ut  it  was  believed,  all  things  considered, 
better  to  pocket  this  loss  I'ather  than  continue  the  contract.  One  of 
the  main  inducements  to  this  course  was  the  urgent  need  which  we 
had  for  suitable  vessels  and  the  consequent  importance  of  placing  an 
order  for  them  elsewhere. 

Accordingly  the  insular  government  placed  another  contract  with 
Farnham,  Boyd  &  Co. ,  for  five  vessels  of  the  same  class  and  type  as 
the  first  ten  which  had  proven  so  satisfactory.  All  these  vessels  have 
now  been  delivered  and  are  being  operated  along  routes  and  upon 
schedules  so  arranged  as  to  give  a  regular  service  at  short  inter\'als  to 
all  points  in  the  Archipelago.  Through  their  instrumentality  the 
insular  government  and  the  various  bureaus  thereof  are  able  to  keep 
in  fairly  close  touch  with  all  points  in  the  islands,  however  remote; 
they  furnish  transportation  for  government  mails  and  freight  and  quick 
transfer  from  one  point  to  another  when  necessar}"  of  detachments  of 
constabular}^  and  other  government  officials  and  employees,  and  besides 
are  valuable  for  coast-guard  purposes  in  preventing  violations  of  the 
customs  law.  They  have  proven  esj)ecially  useful  during  the  last  few 
months  in  the  distribution  of  government  rice.  Each  of  these  vessels 
has  a  small  armament  consisting  of  a  Gatling  and  Colt  rapid-firing 
gun,  together  with  a  number  of  small  arms,  so  that  they  can  be  util- 


OF    THE    PHILIPPINE    ISLANDS,    1900-1'J03.  623 

ized  if  needed  in  suppressing  disorder.  They  have  cost  in  the  aggre- 
gate $1,057,000  and  involve  an  annual  outlay  in  their  operation  and 
maintenance  of  aliout  $500, 000.  They  have  proved  to  be  a  wise 
investment,  both  from  the  standpoint  of  economy  and  efficient  admin- 
istration and  indeed  are  indispensable. 

LIGHT-HOUSE    DIVISION. 

The  light-house  division  of  the  bureau,  during  the  greater  part  of 
the  3'ear  under  the  immediate  direction  of  Capt.  Henry  Jervey  and 
later  under  the  direction  of  Capt.  Spencer  Cosby,  U.  8.  Army,  in 
addition  to  looking  after  the  existing  light-houses,  has  been  engaged 
in  making  extensive  repairs  and  improvements  upon  those  alread}'^ 
established  by  the  Spaniards  and  has  begun  the  construction  of  several 
other  light-houses  whei'e  they  are  imperatively  needed.  Besides 
many  new  minor  lights  have  been  set  up  and  buoys  and  beacons 
located  where  necessaiy. 

The  report  of  Commander  J.  M.  Helm,  U.  S.  Navy,  chief  of  the 
bureau  of  coast  guard  and  transportation,  is  attached  hereto  and  gives 
in  detail  the  histoiy  of  the  operations  of  his  bureau. 

BUREAU   OF    POSTS. 

There  has  been  a  steady  increase  in  the  business  of  this  bureau  during 
the  past  fiscal  year.  On  July  1,  J  902,  there  were  only  90  post-offices 
in  the  entire  islands.  During  the  year  there  have  l:)een  established  149 
new  post-offices  and  30  have  been  discontinued,  a  net  increase  of  119. 
A  money  order  business  is  transacted  in  connection  with  the  post- 
offices  at  all  important  points.  This  bureau  has  been  much  hampei'ed 
by  the  lack  of  satisfactory  transportation  and  its  inability  to  procure 
reliable  postmasters  at  remote  points  where  the  business  is  small  and 
the  compensation  nominal.  The  establishment  of  the  coast  guard  and 
transportation  lines  above  referred  to,  however,  has  done  much  to 
remove  the  first  of  these  difficailties,  and  there  has  1)een  a  steady  improve- 
ment, in  the  promptitude  with  which  mails  are  delivered;  the  second 
of  these  difficulties  remains,  but  is  being  overcome  as  far  as  possible 
by  utilizing  American  school-teachers  or  reliable  Filipinos  wherever 
available. 

While  nuich  remains  to  be  done  in  the  matter  of  post-office  extension 
and  the  delivery  of  mails  at  interior  points,  all  things  considered,  the 
postal  service  has  ])een  efficiently  conducted,  and  is  being  and  will  be 
extended  as  rapidly  as  possible.  Jt  costs  the  government  for  the  fiscal 
year  about  the  sum  of  $250,000  and  its  receipts  Avere  about  $150,000, 
thus  showing  a  dcHcicncy  of  about  $100,000. 

The  report  of  C.  M.  Cotterman,  director  of  posts,  is  hereto  attached 
and  gives  the  requisite  detailed  information  as  to  the  operations  of  his 
bureau  during  the  year. 

BUREAU   OF    ENOINEERINCJ. 

This  bureau  was  created  on  the  8th  of  January,  190;->,  by  Act  No. 
584,  and  is  under  the  immediate  direction  of  the  consulting  engineer 
to  the  Connnission.     It  has  charge  of  reconnaissances,  examinations. 


(324  REPORTS    OF    THE    CIVIL    GOVERNMENT 

surveys  of  rivers  and  harbor  improvements,  construction  of  sewers, 
-waterworks,  and  other  public  works  reciuiring-  enoincerino-  skill 
except ini;-  the  construction  of  public  building-s,  and  excepting  also  the 
liarbor  inii>r()vements  of  the  port  of  Manila.  It  is  also  given  general 
charge  and  su\)ervision  of  all  provincial  supervisors  in  so  far  as  relates 
to  tlu'  laying  out  and  constructioii  of  roads,  bridges,  and  other  engi- 
neering works.  It  has  made  a  surve}'^  of  the  harbors  of  Cebu  and  of 
Iloilo  with  a  view  to  extensive  permanent  improvements.  At  this  time 
Cebu  and  Iloilo  are  the  commercial  centers  to  which  the  greater  part 
of  the  commerce  of  the  Visa3^an  Islands  and  the  northern  coast  of 
Mindanao  gravitates.  These  islands  are  important  both  for  their  size 
and  natural  resources.  They  produce  hemp,  sugar,  and  copra  in  very 
considerable  and  steadily  increasing  quantities  and  are  capable  of  great 
development, 

Cebu  and  Iloilo  are  ports  of  entry  to  and  from  which  foreign  vessels 
come  and  go  in  considerable  number.  They  are  growing  in  population 
and  l)u.siness  and  their  customs  receipts  are  steadily  increasing.  At 
present  in  both  of  these  harbors  vessels  of  large  tonnage  are  compelled 
to  lie  oif  at  considerable  distance  from  the  shore,  which  makes  it 
necessary  for  all  freight  to  be  lightered  in  taking  on  and  discharging 
cargoes.  This  causes  much  expense  and  delay  and  constitutes  a  heavy 
burden  upon  commerce,  and  is  a  serious  drawback  to  the  prosperity  of 
the  islands. 

As  a  result  of  the  survey  and  soundings  made  in  the  harbor  of  Cebu 
a  plan  has  been  prepared  for  building  a  concrete  masonry  wharf  about 
2,500  feet  in  length  which  may  be  extended  from  time  to  time  as  the 
needs  of  commerce  demand.  Considerable  dredging  is  necessary 
along  its  front  and  the  material  will  be  deposited  behind  the  masonry 
walCand  thereby  about  13  acres  of  very  valuable  land  will  be  reclaimed 
which  will  belong  to  the  insular  government.  This  land  will  be  sub- 
divided, upon  a  proper  plan,  into  streets  and  lots,  and  the  latter  will 
be  sold  and  utilized  for  business  purposes.  The  proceeds  of  sales  will 
pay  a  large  portion  of  the  money  expended  in  construction.  When 
this  improvement  is  completed  vessels  of  23  feet  draft  will  be  able  to 
lie  alongside  the  wharf  in  safety  and  load  and  unload  their  cargoes. 
Bids  for  doing  this  work  have  already  been  advertised  and  will  be 
shortlv  opened  and  contract  awarded. 

The  cit}^  of  Iloilo  is  located  on  the  river  of  the  same  name,  which 
empties  into  the  channel  separating  the  island  of  Guimaras  from  the 
island  of  Panay.  This  port  has  heretofore  ranked  as  second  in 
importance  in  the  Archipelago.  Now  vessels  of  about  12  feet  draft 
only  can  enter  the  river  at  high  tide  and  are  always  liable  to  ground 
on  the  bar  at  the  mouth  of  the  river.  Larger  vessels  are  compelled 
to  anchor  in  the  channel  a  mile  or  more  from  town.  The  scheme  of 
improvement  for  this  harbor  involves  contining  and  deepening  the 
channel  of  the  river  by  means  of  dikes  and  dredging,  and  also  con- 
templates proper  provision  for  suitable  walls  and  docks.  Advertise- 
ment for  bids  for  the  doing  of  this  work  has  also  been  made  and  the 
contract  will  doubtless  be  awarded  at  the  same  time  as  that  of  Cebu. 

An  appropriation  of  $350,000  has  ])ecn  made  by  the  Commission  for 
the  har])or  of  Cebu  and  1150,000  for  the  harbor  of  Iloilo.  It  is  not 
supposed,  however,  that  these  sums  will  be  adequate  to  complete  the 
improvements  contemplated. 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  625 

PANSIPIT   EIVER   IMPROVEMENT. 

Surveys  have  also  been  made  looking-  to  the  improvement  of  the 
Fansipit  River,  which  flows  from  Lake  Taal,  in  the  province  of 
Batangas,  a  distance  of  about  6  miles,  where  it  empties  into  the  China 
Sea  at  the  towns  of  Taal  and  Lemery.  It  is  contemplated  to  deepen 
this  river  so  as  to  permit  boats  of  at  least  6  feet  draft  to  pass  from 
Lake  Taal  to  the  sea.  The  lake  itself  is  a  considerable  sheet  of  water, 
and  its  watershed  contains,  several  hundred  square  miles  of  fertile  and 
beautiful  country.  At  present  the  only  outlet  for  this  section  is  by 
means  of  ordinary  roads,  which  are  extremely  rough,  and,  indeed,  are 
little  more  than  mere  trails.  The  improvement  of  the  harbor  ol 
Batangas,  which  is  the  capital  of  the  province,  and  the  construction 
of  a  wharf  to  which  vessels  of  a  considerable  draft  may  come  are  also 
being  provided  for. 

Batangas  Province  prior  to  the  insurrection  was  perhaps  the 
wealthiest  province  in  the  islands.  It  has  suflered,  however,  very 
severely  from  the  destruction  of  its  coffee  plantations,  from  the  mis- 
fortunes of  war,  and  loss  of  horses  and  cattle  by  disease.  While  the 
intended  improvement  of  the  Pansipit  River  would  be  well  warranted 
because  of  its  value  as  an  internal  improvement,  it  will  be  at  this  time 
of  an  especial  benefit  to  the  masses  of  the  people  of  Batangas,  as  it  will 
furnish  them  a  much-needed  means  of  livelihood.  These  works  will  be 
paid  for  out  of  the  Congressional  relief  fund. 

TARLAC   AND   PAMPANGA   RIVERS. 

The  consulting  engineer  has  also  taken  up  the  subject  of  overflow 
of  the  Tarlac  and  Pampanga  rivers  running  through  the  provinces  of 
the  same  name  in  the  island  of  Luzon.  The  region  lying  along  and 
contiguous  to  the  banks  of  these  streams  is  densely  populated  and 
very  fertile.  During  the  rainy  season  there  are  frequenth'  disastrous 
overflows  from  the  rivers.  It  is  thought  probable  that  by  means  of 
dikes  and  levees  this  overflow  may  be  prevented.  Nothing,  however, 
has  been  accomplished  beyond  a  preliminary  survey  of  the  sections 
involved,  which  will  be  followed  by  a  topographical  survey  and 
estimate  of  cost  of  the  work  necessary  to  accomplish  the  end  in  view. 

BENGUET  IMPROVEMENT  WORK. 

The  work  of  ]>uilding  the  road  from  Pozorrubio,  in  the  province  of 
Pangasinan,  to  Baguio,  in  the  province  of  Benguet,  has  now  l)een  in 
progress  for  more  than  two  3^ears.  Much  has  })een  said  in  our  former 
reports  concerning  the  importance  of  this  road  as  furnishing  an  easy 
and  convenient  passage  to  the  highlands  of  Benguet.  The  Commis- 
sion has  already  had  constructed  a  sanitarium  at  J^aguio  whore  invalid 
civil  servants  may  recuperate,  and  is  determined  to  make  further 
appropriations  for  the  construction  of  government  buildings  and  resi- 
dences for  government  oflicials  and  emplo3^ees,  for  occupancy  during 
the  heated  season.  At  present  access  to  Baguio  is  very  difficult  and 
involves  a  journey  of  several  days,  nuich  of  it  over  rough  mountain 
trails.  The  road  now  in  course  of  construction  will  make  access  com- 
paratively easy,  especially  if,  as  is  contemplated,  a  steam  or  electric 
railroad  is  constructed  thereon. 


G26  REPORTS    OF    THE    CIVIL    GOVERNMENT 

The  first  survoy  of  this  road  was  made  nearlj"  three  ,years  ago  by 
Capt.  C'h  irles  W.  Meade,  'Phirty-sixth  U.S.  Infantry,  who  at  the  time 
of  his  selection  for  this  duly  was  acting  as  city  engineer  of  Manila 
under  appointment  of  General  MacAi'thur,  then  military  gov^ernor. 
The  result  of  the  survey  as  made  by  him  showed  that  the  road  could 
be  built  at  a  cost  of  about  $3,000  per  mile  upon  easy  grades  and 
that  there  were  no  serious  engineering  difhculties  to  bo  overcome. 
Believing  this  report  to  be  reliable,  the  Commission  had  Captain  Meade 
assigned  to  take  charge  of  this  work  and  made  the  appropriation  which 
he  stated  was  adequate.  After  the  exhaustion  of  the  first  appropria- 
tion, however,  it  was  discovered  that  his  estimate  of  cost  was  much 
too  small  and  that  it  would  probably  require  twice  the  sum  originall}' 
estimated  to  complete  it,  and  the  Commission  again  made  the  neces- 
sary appropriation.  After  a  large  amount  of  work  had  been  done  on 
the  road  along  the  line  originall}^  projected,  and  when  an  early  com- 
pletion seemed  in  sight,  we  were  much  disappointed  to  find  that  owing 
to  the  shifting  character  of  the  soil  and  rock  through  which  it  ran  the 
route  as  surveyed  was  impracticable.  In  several  places  where  the  road 
ran  along  the  shoulders  of  the  mountains,  when  heavy  rains  fell,  loose 
rock  and  soil  would  slide  down  upon  it  and  he  bottom  of  the  road 
itself  would  frequently  drop  out  into  the  valley  below.  More  careful 
investigation  disclosed  that  this  was  due  to  the  fact  that  the  moun- 
tains themselves  were  composed  of  a  mass  of  small  broken  rock  mixed 
with  volcanic  mud  which  when  cut  into  in  building  the  road  caused 
the  downward  movement  above  mentioned.  It  was  found  also  upon 
investigation  and  after  experiment  that  this  could  not  be  prevented 
even  by  building  heavy  retaining  walls,  because  the  roadbed  itself  when 
saturated  b}^  heavy  rains  would  and  did  give  way,  carrying  the  retaining 
wall  with  it.  The  original  error  made  by  Captain  Meade  in  underesti- 
mating the  cost  of  the  road,  as  stated  above,  was  perhaps  not  remark- 
able. At  the  time  he  made  his  first  estimate  labor  conditions  were 
exceedingly  unsettled,  and  the  difficulties  experienced  in  transportation 
of  food  and  other  supplies  necessary  for  carrying  on  the  work  were 
ver}^  great.  The  most  serious  error,  however,  he  conmiitted  was  in  not 
making  a  more  careful  exploration  as  to  the  character  of  the  rock  and 
soil  through  which  the  line  of  road  was  projected.  Had  he  done  this 
the  impracticability  of  his  route  would  have  been  made  manifest.  The 
original  route,  as  surveyed  by  Captain  Meade  and  thereafter  abandoned 
for  the  reasons  stated,  will  not,  however,  be  entirely  useless,  as  it  opens 
up  a  very  pretty  mountain  country.  In  this  embarrassing  situation  the 
question  was  presented  to  the  Commission  as  to  whether  it  should 
permanentl}^  abandon  the  project  of  building  the  road  or  proceed 
along  another  line.  The  Commission  was  indisposed  to  adopt  the  first 
alternative,  and  therefore  directed  Mr.  J.  W.  Beardsley,  consulting 
engineer  to  the  Commission,  who  came  to  us  highly  recommended  and 
who,  as  his  subsequent  work  has  demonstrated,  is  a  careful,  conscien- 
tious, and  thorouo-hly  equipped  civil  engineer,  to  make  a  careful 
survey.  This  he  did,  and  reported  that  it  was  feasible  to  build  a  sub- 
stantial road  along  the  banks  of  the  Bued  Kiver  above  the  flood  line, 
but  that  this  route  involved  the  expenditure  of  at  least  a  million  dol- 
lars, as  much  of  the  way  ran  through  solid  rock.  The  Commission 
determined  that  notwithstanding  the  great  outlay  of  money  involved 
the  accruing  benefits  warranted  the  expenditure,  and  directed  the  work 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  627 

to  proceed.  It  has  been  prosecuted  under  man}^  difficulties,  both  in 
the  matter  of  procurino-  labor  and  competent  supervising-  engineers. 

The  duties  of  the  consulting  engineer  were  so  exacting  as  to  make 
it  impossible  for  him  to  devote  his  time  to  directing  operations. 
Realizing  the  necessit}^  of  having  an  engineer  of  skill  and  energy  in 
charge,  some  six  months  since,  the  civil  governor  asked  for  and  pro- 
cured the  detail  of  Maj.  L.  W.  V.  Kennon,  Tenth  U,  S.  Infantry, 
and  placed  him  in  charge.  He  came  highly  recommended  as  an  engi- 
neer of  skill,  experience,  and  energ'}",  having  had  much  engineering 
experience  in  tropical  countries,  bince  he  has  taken  charge  he  has 
fully  ^"ustified  his  selection  and  is  now  engaged  in  pushing  the  work 
forwai  1  successf  ull}'  and  rapidly  and  it  is  hoped  and  believed  will  com- 
plete it  within  the  next  twelve  months.  He  is  cons'  icting  the  road 
upon  comparativelj"  easy  grades  and  of  proper  width  so  that  it  may  be 
used  either  as  an  ordinarj-  highway  or  as  the  roadbed  of  an  electric 
or  steam  road.  He  now  has  about  3,000  men  engaged  upon  the  work, 
2,500  of  whom  are  Filipinos. 

I  do  not  hesitate  to  recommend  that  the  Commission  should  ulti- 
mately establish  rail  connection  between  Dagupan,  the  northern  ter- 
minus of  the  Manila  and  Dagupan  Railroad,  and  Baguio.  The  distance 
between  these  two  points  is  about  55  miles.  The  road  between  Dagu- 
pan and  Pozorrul)io,  a  distance  of  about  30  miles,  presents  no  engi- 
neering difficulties.  It  would  run  through  a  beautiful  and  fertile 
agricultural  country  now  dotted  with  rice  paddies  and  villages,  the 
traffic  from  which  would  make  the  building  of  the  road  to  this  point 
fairly  profitable.  The  road  from  Pozorrubio  to  Baguio,  for  the  most 
part,  would  run  along  the  valley  of  the  Bued  River  and  through  a 
country  practically  uninhabited  until  it  reached  Baguio  at  an  elevation 
of  nearly  a  mile  above  the  lowlands.  This,  as  will  be  seen,  involves  a 
steady  climb  of  about  -1,500  feet  in  a  distance  of  about  25  miles.  The 
Bued  River,  along  which  the  road  will  run,  has  a  heavy  fall  and  a 
very  considerable  volume  of  water  and  would  furnish  the  means  of 
procuring  proper  power  for  the  operation  of  an  electric  line  from 
Pozorrubio  to  Baguio. 

It  seems  reasonably  certain  that  there  are  valuable  deposits  of  gold 
and  copper  in  the  Benguet  Mountains,  which  probabl}^  can  be  profit- 
ably  worked  as  soon  as  reasonably  cheap  transportation  for  machinery, 
supplies,  etc.,  can  be  furnished  miners.  If  we  are  not  mistaken  in 
this,  the  road  ought  to  be  self-supporting  and  will  be  an  important  fac- 
tor in  the  development  of  the  mineral  resources  of  this  section.  Aside 
from  this,  however,  it  is  believed  that  if  the  plans  of  the  Commission 
are  carried  out  there  would  be  a  very  considerable  increase  in  the  pop- 
ulation of  Benguet  Province.  There  are  several  fairl}^  rich  valle3's  in 
the  neigliborliood  of  Baguio,  and  all  the  mountains  are  covered  with  a 
growth  of  grass,  upon  which  cattle  flourish. 

Prior  to  the  insurrection  the  Igorrotes,  who  arc  the  only  inhabitants 
of  this  region,  were  the  owners  of  considerable  herds  of  cattle,  and  it 
is  l)elieved  that  cattle  raising  would  be  engaged  in  on  an  extensive 
scale  so  soon  as  means  of  communication  were  furnished  with  Manila 
and  other  centers  of  population.  As  matters  stand  to-day,  there  is 
quite  a  large  trade  in  importing  cattle  from  China  to  be  slaughtered 
and  sold  in  the  Manila  market. 

The  Commission,  by  Act  No.  92G,  has  provided  for  the  laying  out  of 


628  REPORTS    OF   THE    CIVIL    GOVERNMENT 

town  sites  and  the  sale  of  lots,  having  in  mind  especial  1}^  the  laying 
out  of  a  town  at  Baguio,  and  it  is  thought  that  with  a  ready  and  coni- 
fortahle  way  to  reach  Haguio  there  would  spring  up  a  town  of  (;on- 
siderable  proportions  which  would  contribute  largely  to  the  support 
of  the  road;  but  the  prime  consideration  for  its  construction  lies  in 
the  importance  of  making  accessible  this  l)cautif  ul  pine-wood  mountain 
countr}^  with  its  running  streams  of  pure  water  and  its  ideal  climate. 
Experience  has  shown  that  white  men,  born  in  and  accustomed  to 
colder  climates,  live  and  flourish  there  to  as  great  a  degree  as  in  Cali- 
fornia or  other  sections  of  the  United  States.  Experience  further 
shows  that  when  enervated  by  long-continued  living  in  the  lowlands, 
or  when  suffering  from  dysenteric  and  other  tropical  diseases,  if  they 
resort  to  Benguet  they  quickly  recuperate.  It  would  be  unquestion- 
ably, in  the  long  run,  b}"  far  the  most  economical  if,  for  at  least  four 
months  during  the  hot  season  of  each  year,  'Ms  place  could  be  the  offi- 
cial seat  of  the  government,  easily  accessible  to  government  employees 
and  to  Americans  and  Europeans  engaged  in  business  here.  It  would 
be  a  thorough  solution  of  the  health  problem  in  so  far  as  it  relates  to 
living  in  the  islands.  The  wealthier  Filipinos  are  also  much  interested 
in  the  development  of  the  Benguet  project,  and  will  doubtless  erect 
summer  homes  there  instead  of  going  to  Japan  and  other  more  northern 
countries  during  the  heated  season,  as  heretofore. 

Maj.  Gen.  George  W.  Davis,  shortly  before  surrendering  command 
of  the  Division  of  the  Philippines,  visited  Benguet  and  selected  a  loca- 
tion containing  700  acres  for  a  military  reserv^ation,  which  is  an  ideal 
site.  If  comfortable  quarters  and  barracks  were  erected  thereon  for 
officers  and  men,  it  would  be  wise  to  keep  in  garrison  at  that  point  at 
least  one-third  of  the  American  troops  stationed  in  the  islands.  By 
shifting  a  portion  of  those  stationed  in  the  lowlands  to  Baguio  for  a 
proper  period,  and  the  reverse,  the  term  of  duty  of  troops  in  the  Phil- 
ippine Islands  could  be  much  extended  and  a  consequent  saving  made 
in  the  cost  of  frequent  transportation  to  and  fro  of  troops  from  the 
United  States  to  the  islands  and  from  the  islands  to  the  United  States. 
Moreover,  the  Government  would  not  so  frequently  suffer  the  loss  of 
service  and  efficiencj"  of  its  employees  on  account  of  the  effects  of  a 
tropical  climate.  In  adopting  such  a  plan  as  this  we  would  be  but 
following  the  course  pursued  by  the  English  in  India  and  other  trop- 
ical countries  with  such  eminent  success. 

ELECTRIC   rOWER   FOR   MANILA. 

The  bureau  has  also  had  under  its  direction,  pursuant  to  acts  of  the 
Commission,  the  investigation  of  the  falls  of  certain  small  rivers  in  the 
provinces  of  La  Laguna  and  Bulacau  in  order  to  develop  power  for 
transmission  to  Manila  and  neighboring  cities  and  towns.  Preliminar}'' 
surveys  have  already  been  made  of  the  falls  of  the  Angat  River  in  the 
province  of  Bulacan  and  of  the  Dilitinan,  Laniot,  and  Calaraj^an  rivers 
in  the  province  of  La  Laguna,  with  this  end  in  view.  The  tirst  of 
these  rivers  is  about  35  miles  and  the  others  are  about  50  miles  from 
Manila.  A  careful  topographical  survey  is  now  being  prosecuted  so 
that  certain  and  accurate  information  may  be  obtaineci  Already  it 
has  been  ascertained  that  from  fifteen  to  twenty  thousand  horsepower 
can  be  derived  from  these  sources.  So  far  no  serious  engineering  dif- 
ficulties have  been  encountered,  and  it  is  believed  that  a  completion  of 


OF   THE    PHILIPPINE    ISLANDS,   1900-1903.  629 

power  plants  and  conduits  for  the  transmission  of  power  to  Manila 
will  not  be  more  expensive  than  in  the  case  of  similar  plants  in  the 
United  States. 

Manila  and  all  other  cities  of  the  Archipelago  using  coal  tind  their 
source  of  supplies  in  Japan  and  Australia.  These  coals  are  of  an 
inferior  quality,  and  yet  the}^  range  in  price,  at  wholesale,  from  $5  to 
$7  gold  a  ton  and  sometimes  even  higher.  This  is  a  heavy  burden 
upon  all  manufacturing  enterprises.  With  the  introduction  of  cheap 
electrical  power  removing  this  obstacle,  it  is  believed  that  a  great 
impetus  will  be  given  manufacturing  enterprises  and  to  the  construc- 
tion of  electric  railroads  and  other  plants  in  Manila  and  throughout 
the  large  and  densely  populated  territory  adjacent  thereto.  As  soon 
as  complete  and  definite  information  upon  this  subject  is  secured  the 
Commission  will  probably  grant  one  or  more  franchises  for  the  devel- 
opment of  this  power.  A  number  of  foreign  capitalists,  having  large 
interests  in  the  islands,  have  already  made  application  for  a  franchise 
to  develop  the  water  power  of  the  Angat  River  above  referred  to,  and 
several  other  inquiries  and  tentative  propositions  from  other  respon- 
sible sources  have  been  received.  It  seems  assured  that  there  will  be 
no  difficult}^  in  procuring  all  the  capital  necessarj^  to  develop  these 
enterprises.  It  would  probably  be  most  to  the  public  interest  if  a 
franchise  were  granted  to  one  strong  company  with  restrictions  and 
requirements  as  to  the  furnishing  of  power  to  all  applicants  and  upon 
a  reasonable  schedule  of  rates. 

HIGHWAYS. 

The  bureau  pursuant  to  the  various  acts  of  the  Commission,  has 
also  been  engaged  in  survejdng  several  highways  in  the  islands  of 
Luzon,  Cebu,  Negros,  Leyte,  and  Panay,  which  are  of  more  than 
local  or  even  provincial  importance  and  which  are  either  too  expensive 
for  the  provinces  in  which  they  are  to  be  located  to  construct,  and 
which  connect  towns  in  the  different  provinces. 

The  details  of  these  projects  need  not  here  be  set  forth,  inasmuch 
as  they  are  f ull}^  explained  in  the  report  of  Mr.  J.  W .  Beardsley, 
chief  of  the  bureau,  which  is  attached  hereto  and  made  a  part  of  this 
report. 

BUREAU  OF  COAST  AND  GEODETIC  SURVEY. 

The  work  of  this  office  has  been  vigorousl}^  prosecuted  during  the 
past  year.  A  very  considerable  amount  of  field  work  has  been  done. 
A  number  of  surveys  of  the  more  important  harbors  and  gulfs  along 
the  coast  of  Luzon  and  the  southern  islands  have  been  completed.  A 
continuous  topographic  survey,  with  triangulations,  has  been  carried 
on  along  the  northern  coast  of  Luzon,  from  San  Fernando  to  Cape 
Bojeador  and  eastward  along  the  northern  c^oast  of  Luzon.  A  trian- 
guiation  has  been  carried  across  Manila  Bay,  locating  prominent  points 
about  the  bay,  the  islands  at  the  entrance,  and  hills  and  mountains  in  the 
neighborhood.  The  work  of  determining  the  latitudes  and  longitudes 
of  important  base  points  has  been  continued  throughout  the  year. 
Quite  a  number  of  places  have  been  determined.  Magnetic  observa- 
tions at  twelve  places  have  been  made  to  sup^  ly  needed  information 
for  charts.  Tidal  observations  have  also  been  taken  at  14  stations, 
and  at  Manila  this  record  has  been  continued  throughout  the  year. 


630  REPORTS    OF    THE    CIVIL    (JOVERNMENT. 

S:\ilino- directions  and  notices  to  mariners  have  been  prepared,  printed, 
and  distributed  from  time  to  time.  The  work  of  chart  preparation 
has  been  pressed  forward  and  charts  have  been  distributed  to  masters 
of  vessels  and  others  inter(\sted.  The  report  of  the  assistant  of  the 
United  States  Coast  and  Geodetic  Survey  in  charge  of  this  1>ureau  will 
be  found  hereto  attached,  giving  a  synopsis  of  the  work  of  tlie  bureau 
for  the  past  j'car. 

Respectfull}'  submitted. 

Luke  E.  Wright, 
Secretary  of  Commerce  and  Police. 


SECOND  ANNUAL  REPORT 


SECRETARY   OF   FINANCE  AND  JUSTICE. 


Department  of  Finance  and  Justice, 

3[anlla,  P.  /.,  Novemher  6,  1903. 
Gentlemen:  I  hereb}"  submit  a  report  on  matters,  legislative  and 
executive,  pertaining  to  the  department  of  finance  and  justice  in  the 
Philippine  Islands,  during  the  period  from  September  30,  1902,  to 
September  1,  1903. 

The  statistics  herein  contained  will  be  those  prior  to  the  last  named 
date,  except  when  otherwise  stated. 

ADMINISTRATION   OF   JUSTICE. 

At  the  date  of  the  first  annual  report  from  this  ofiice  to  the  Com- 
mission, November  1,  1902,  a  complete  judicial  system  had  been  inau- 
gurated throughout  the  whole  Archipelago,  mainly  under  legislation 
enacted  by  the  Philippine  Commission  during  the  year  1901.  That 
system  has  continued  in  successful  operation  during  the  period  of  this 
report,  and  has  in  the  main  met  the  reasonable  expectations  of  the 
public,  and  has  completel}^  vindicated  the  wisdom  of  the  new  departures 
involved  in  the  reorganization  of  courts  and  judicial  procedure.  Expe- 
rience has  shown  that  some  modifications  in  the  system  ^vere  necessar}', 
particularly  in  relation  to  the  salaries  of  judges  and  geographical 
boundaries  of  the  several  judicial  districts,  and  accordingly  some 
changes  have  been  made  in  those  respects  which  will  be  referred  to 
hereinafter. 

The  civil  ])usincss  in  the  courts  has  increased  as  the  commercial 
interests  of  the  islands  have  become  more  settled  and  well  established, 
and  the  courts  have  been  able  to  furnish  satisfactory  tribunals  for  the 
speedy  and  just  termination  of  such  controversies.  The  accumulation 
of  old  litigation  which  remained  upon  the  dockets  at  the  termination 
of  the  Spanish  regime  has  been  very  largely  closed  up,  and  the  busi- 
ness in  the  courts,  civil  and  criminal,  is  now  mainly  current  in  dis- 
tinction from  the  disposition  of  arrears  of  old  business.  There  has 
been  a  very  large  amount  of  criminal  business  to  occupy  the  attention 
of  the  courts,  some  of  it  growing  out  of  the  defalcations  of  receiving 
or  disbursing  officers  employed  by  the  insular  government,  or  by 
private  persons,  firms,  or  l)usincss  corporations,  and  more  of  it  grow- 
ing out  of  the  disturbed  conditions  incident  to  the  recovery  from 
several  years  of  warfare  and  the  prevalence  of  bands  of  ladrones  or 
robbers  in  various  sections  of  the  Archipelago.     In  the  prosecution  of 

631 


632  REPORTS    OF    THE    CIVIL    GOVERNMENT 

minor  offenses,  the  provincial  liscals  have  been  able  to  cope  success- 
fully with  the  situation,  aided  largely  by  supervisors  of  fiscals  sent  out 
from  Manila.  In  more  important  prosecutions  the  attorney-general, 
the  solicitor-general,  and  subordinates  in  the  office  of  the  attorney- 
general  have  rendered  efficient  and  valuable  services.  The  judges, 
both  native  and  American,  have  performed  their  duties  in  a  very 
satisfactory  manner,  and  convictions  have  been  secured  in  nearly 
every  case  where  justice  required  conviction.  Adequate  penalties 
have  been  imposed.  Justice  is  administered  evenly,  uniformly,  hon- 
estly, expeditiously,  and  a))ly  throughout  the  islands.  It  is  not  too 
nuich  to  sa3'  that  the  new  judicial  system  has  ])een  one  of  the  greatest 
benefits  that  has  been  conferred  upon  the  islands  l)y  the  American 
Government,  and  that  it  has  brought  home  to  the  Filipino  people  an 
abiding  conviction  that  in  the  courts  is  to  be  foi  '  cafe  and  reliable 
protection  against  all  unjust  invasions  of  person  or  property. 

The  fiscals  or  prosecuting  officers  in  the  provinces,  with  one  excep- 
tion for  a  portion  of  the  year,  have  all  been  Filipinos. 

The  justices  of  the  peace  are  substantially  all  natives.  It  has  been 
found  very  difficult  in  many  of  the  municipalities  to  find  persons  who 
are  competent  to  perform  the  duties  of  that  office,  and  there  have  been 
a  very  large  number  of  justices  of  the  peace  who  have  resigned  their 
positions,  owing  in  part  to  incapacity  to  perform  their  duties,  but 
more  owing  to  the  burdensomeness  of  the  duties  required  of  them 
under  the  Spanish  procedure  and  the  small  compensation  provided  by 
law  for  their  services.  Under  the  existing  procedure  in  preliminary 
hearings  of  criminal  prosecutions  before  justices  of  the  peace  all  tes- 
timony offered  must  be  reduced  to  writing  in  full  and  be  read  over  to 
and  signed  by  the  witness.  This  often  requires  in  important  cases 
many  da3's  of  investigation  and  a  large  amount  of  writing.  In  the 
press  of  other  work  the  Commission  has  not  jet  been  able  to  enact  a 
new  code  of  criminal  procedure.  A  draft  of  such  a  law  was  long  ago 
made  by  Commissioner  Wright,  and  will  be  acted  upon  as  soon  as  pos- 
sible. After  its  enactment  the  most  burdensome  requirements  that 
are  now  imposed  upon  justices  of  the  peace  will  be  largely  removed,  and, 
with  perhaps  some  other  modifications  of  the  justice  system,  it  is  thought 
the  difficulties  will  be  overcome. 

NEW   LEGISLATION    RELATING   TO  THE    SUPREME    COURT   AND   COURTS   OF 

FIRST   INSTANCE. 

In  the  transition  from  military  to  civil  government  it  was  found 
that  certain  judgments  and  sentences  of  provost  courts  and  military 
commissions  which  had  been  confirmed  by  order  of  the  proper  military 
commander,  whereby  persons  had  been  tinall}"  convicted  of  crime,  had 
not  been  executed,  and  could  not  be  executed  by  order  of  the  military 
authorities,  because  such  authorities  had  ceased  to  have  power  to  direct 
the  execution  of  such  sentences.  To  meet  this  difficulty  Act  No.  865 
was  passed  on  the  3d  day  of  September,  1903,  authorizing  the  civil 
governor  to  direct  the  attorney-general  to  present  to  the  court  of  first 
instance  having  territorial  jurisdiction  over  the  place  where  such  crime 
was  committed  a  record  of  the  proceedings,  showing  the  conviction 
and  sentence  of  the  defendant  in  such  proceedings  and  the  confirmation 
thereof,  when  necessary,  and  praying  that  the  defendant  be  brought 
before  the  court  to  show  cause  whv  the  sentence  should  not  be  exe- 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  633 

cuted  by  order  of  the  court  of  first  instance,  and  authorizing  the  court 
of  first  instance  in  such  case  where  it  appeared  that  the  military  court 
had  jurisdiction  and  that  the  sentence  had  not  been  executed  and  the 
defendant  had  not  been  pardoned  or  amnestied,  to  direct  the  execution 
of  the  sentence  in  whole  or  in  part,  as  the  law  might  require. 

On  the  5th  day  of  September,  1903,  Act  No.  867  was  passed  making 
new  provisions  for  leaves  of  absence  of  the  judges,  and  for  the  terms 
and  places  of  holding  the  supreme  court,  and  for  a  rearrangement  of 
the  judicial  districts  and  the- times  and  places  of  holding  the  courts  in 
each  province,  and  for  creating  two  additional  districts  and  providing 
judges  for  them,  and  revising  certain  provisions  of  law  as  to  the  special 
terms  and  the  perfecting  of  bills  of  exceptions,  and  providing  more 
fully  as  to  the  traveling  expenses  of  judges,  fiscals,  and  clerks.  It  is 
unnecessar}^  to  state  in  full  the  provisions  of  the  act  referred  to.  Its 
more  important  provisions  may  be  thus  summarized:  It  authorizes  a 
suspension  of  the  sessions  of  the  supreme  court  and  of  the  courts  of 
first  instance  from  the  1st  of  May  to  the  1st  of  July  of  each  year,  this 
period  being  known  as  the  court  vacation.  During  the  court  vaca- 
tion one  judge  of  the  supreme  court  and  one  judge  of  the  court  of 
first  instance  for  the  judicial  district  of  Manila  are  required  to  be 
present  in  Manila,  one  of  the  four  judges  at  large  to  remain  in  the 
islands  subject  to  the  call  of  the  governor,  and  five  of  the  other  judges 
of  the  court  of  first  instance  outside  of  the  district  of  Manila  to  remain 
on  duty  in  their  respective  districts,  and  for  the  alternation  of  the 
judges  so  to  remain  on  duty,  their  selection  to  be  made  by  the  gov 
ernor,  on  recommendation  of  the  chief  justice.  The  assignment  of 
judges  for  vacation  duty  is  to  be  so  arranged  that  no  judge  shall  be 
assigned  for  vacation  duty  more  than  once  in  three  years.  The  judges 
of  the  supreme  court  and  of  the  courts  of  first  instance  not  assigned 
to  vacation  duty  may  spend  their  vacation  either  in  the  islands  or 
abroad;  they  receive  full  pay  during  the  periods  of  vacation  and  leaves 
of  absence.  Liberal  provision  is  also  made  for  the  payment  of  the 
traveling  expenses  of  a  judge  and  his  family,  who  is  appointed  to  the 
Philippines  bench  while  residing  in  the  United  States,  from  his  place 
of  residence  to  Manila.  In  such  cases  also,  after  three  years'  service, 
a  judge  is  entitled  to  transportation  for  himself  and  family  from 
Manila  to  his  place  of  residence  in  the  United  States  upon  his  retire- 
ment from  the  service.  Two  additional  districts  having  been  created 
by  the  act,  two  new  judges  of  the  court  of  first  instance  were  likewise 
thereb}'^  authorized.  Under  the  law  as  it  before  existed  some  of  the 
judges  of  the  courts  of  first  instance  received  but  $3,000  salary,  some 
i>3,500,  some,  |4,000,  some  |4,500,  some  $5,000,  and  those  in  Manila 
$5,500,  per  annum.  Under  tlie  jiew  lawthemininnmi  sahir}'  is  $4,500, 
payal)le  to  the  judges  at  large  and  to  the  judges  of  six  districts;  $5,000  is 
the  salary  now  fixed  for  judges  in  all  the  remaining  districts  outside  of 
the  city  of  Manila.  The  new  division  of  the  judicial  districts  required 
some  changes  of  times  for  holding  courts,  and  the  act  makes  the  neces- 
sary provision  for  that  contingency.  The  law  authorizes  the  judge  to 
make  preliminary  interlocutory  orders  at  any  place  within  his  district, 
and  to  sign  final  judgments  in  certain  cases  after  he  has  left  the  prov- 
ince in  which  the  court  was  held.  It  likewise  makes  special  provision 
for  fiscals  and  prosecutors  in  the  newly  created  mountain  district  and 
in  the  Moro  Province.  It  provides  for  the  appointment  l)y  the  attor- 
ney-general, subject  to  the  approval  of  the  secretary  of  finance  and 


G34  REPORTS    OF    THE    CIVIL    GOVERNMENT 

justice,  of  necessary  clerks,  deputy  clerks,  stenoj^-raphers,  typewriters, 
interpreters,  translators,  escribicntes,  anil  niessenuers  needed  for  the 
proper  transaction  of  the  business  of  the  courts,  and  the  determination 
of  the  number  of  such  employees  that  may  be  necessary  in  the  several 
courts,  and  the  salaries  to  be  paid  to  them, 

THE    COURT    OF    CUSTOMS    APPP^ALS,    AND    NEW    LEGISLATION    RELATING 

THERETO. 

The  court  of  customs  appeals,  as  organized  by  the  provisions  of  the 
customs  administrative  act,  consisted  of  the  secretary  of  finance  and 
justice,  ex  oflicio  president  of  the  court,  a  judge  of  the  supreme  court 
to  l)e  detailed  by  the  governor  for  that  purpose,  and  a  third  judge  to 
be  appointed  by  the  governor,  with  the  advice  and  consent  of  the 
Commission;  the  third  judge  likewise  to  act  as  clerk  of  the  court. 
This  court  had  jurisdiction  of  all  appeals  from  rulings  of  the  collector 
of  customs,  and  also  of  all  criminal  prosecutions  for  violations  of  cus- 
toms laws.  Whenever  the  court  was  not  occupied  in  hearing  customs 
cases  the  third  judge  was  by  law  assigned  to  act  as  judge  of  the  court 
of  first  instance  in  judicial  districts  where  his  services  might  be  needed. 
During  the  period  of  this  repojt  that  judge,  Hon.  Amasa  S.  Crossfield, 
was  engaged  more  than  half  the  time  in  holding  terms  of  courts  of 
first  instance  under  special  detail,  or  in  taking  testimony  under 
appointment  by  the  supreme  court.  The  court  of  customs  appeals 
during  the  year  passed  upon  318  appeals  from  the  decision  of  the  col- 
lector of  customs,  involving  the  power  and  authority  to  collect  duties 
upon  imports;  84  appeals  relating  to  the  power  and  authorit}^  to  levy 
duties  and  wharfage  charges  upon  exports  of  products  of  the  Philip- 
pine Islands  going  direct  to  the  United  States  for  consumption  therein; 
73  appeals  relating  to  classification  of  imported  merchandise  for  the 
purpose  of  determining  the  proper  tariff  to  be  imposed;  18  appeals 
from  the  administrative  imposition  of  fines,  etc.,  by  the  collector  of 
customs;  11  appeals  relating  to  the  right  of  concessionaries  of  the 
Kingdom  of  Spain  to  import  merchandise  without  the  pa3^ment  of 
import  duties;  10  original  criminal  prosecutions,  11  cases  brought 
before  the  court  under  the  immigration  laws,  and  12  special  proceed- 
ings. Final  judgments  were  entered  in  all  but  17  of  the  cases  referred 
to  within  the  year,  and  the  remaining  17  have  nearly  all  been  disposed 
of  since  September  1. 

The  special  report  of  Judge  Crossfield  of  the  proceedings  of  that 
court  is  hereto  annexed  and  marked  ''Exhibit  1." 

While  the  court  of  customs  appeals  as  organized  under  the  customs 
administrative  act  furnished  a  convenient  tribunal  for  the  speedy  deter- 
mination of  all  controversies  arising  under  that  act,  j^et  complaints 
were  made  that  it  was  undesirable  that  judicial  and  administrative 
powers  should  be  so  far  mingled  as  to  require  the  secretary  of  finance 
and  justice  to  act  as  a  member  of  that  court,  that  the  system  of  admin- 
istrative fines  to  be  enforced  by  the  collector  of  customs,  without  right 
of  appeal  to  the  courts  in  certain  cases,  constituted  a  taking  of  property 
without  due  process  of  law,  and  that  there  ought  to  be  a  right  of 
appeal  from  the  judgment  of  that  court  to  the  court  of  last  resort  in 
the  Philippine  Islands,  from  which  cases  might  be  carried  to  the  Supreme 
Court  of  the  United  States  in  cases  where  other  provisions  of  law  war- 
ranted such  action.     The  Commission  deemed  the  complaints  to  be  of 


OF   THE    PHILIPPINE    ISLANDS,    1900-1903.  635 

such  character  that  all  reason  therefor  ought  to  be  removed  by  legis- 
lative action.  Thereupon  Act  No,  861,  entitled  "An  act  to  amend  Act 
Numbered  Three  hundred  and  Hfty-five,  known  as  the  Philippine  cus- 
toms administrative  act,  by  changing  the  membership  of  the  court  of 
customs  appeals,  providing  for  appeals  in  criminal  causes  and  for  certifi- 
cates of  appeal  in  other  customs  cases  where  there  is  a  division  of 
opinion  between  the  judges  of  the  court,  and  specifjang  powers  of 
collectors  of  customs  in  cases  of  fine  and  forfeiture,  and  for  other 
purposes,"  was  enacted  on  -September  3,  1903.  The  salient  features 
of  the  new  legislation  are: 

First.  That  the  court  of  customs  appeals  shall  consist  of  two  judges, 
to  be  appointed  by  the  civil  governor,  with  the  advice  and  consent  of 
the  Philippine  Commission,  with  a  compensation  of  $4,500  per  annum 
each. 

Second.  That  the  court  shall  have  concurrent  jurisdiction  with  courts 
of  first  instance  to  consider  all  criminal  prosecutions  under  the  customs 
administrative  act,  the  immigration  laws  of  the  Philippine  Islands, 
including  the  act  of  Congress  approved  March  3,  1903,  entitled  "An 
act  to  regulate  the  immigration  of  aliens  into  the  United  States,"  the 
Chinese  exclusion  act,  and  the  customs  and  navigation  laws,  the 
court  first  taking  jurisdiction  thereof  to  retain  exclusive  jurisdiction 
of  the  prosecutions  thus  begun. 

Third.  That  there  shall  be  a  right  of  appeal  to  the  supreme  court  in 
every  criminal  case  in  which  the  penalty  of  imprisonment  or  a  fine 
exceeding  600  Philippine  pesos,  exclusive  of  costs,  is  adjudged  against 
the  defendant;  in  other  cases  the  judgment  of  the  court  of  customs 
appeals  being  final. 

Fourth.  That  before  an}^  collector  of  customs  shall  administratively 
subject  any  vessel,  animal,  merchandise,  or  other  property  to  the  satis- 
faction of  a  fine,  penalty,  confiscation,  or  forfeiture,  he  shall  notify  the 
owner  of  the  vessel,  animal,  merchandise,  or  other  propert}^,  or  the 
agent  in  possession,  in  writing,  of  the  fact  that  a  violation  of  the  cus- 
toms administrative  act,  or  of  any  customs,  navigation,  immigration, 
or  exclusion  act  was  charged,  and  give  to  such  person  an  opportunity 
to  be  heard  in  reference  to  the  offense  charged,  and  shall  fix,  in  writing, 
the  fine  or  penalty  which  in  his  judgment  ought  to  be  imposed,  issuing, 
at  the  same  time,  a  warrant  for  the  detention  of  the  ofl'ending  vessel, 
animal,  merchandise,  or  other  property,  and  shall  fix  the  bond,  after  the 
giving  of  which,  with  sufficient  sureties,  the  property  ma}^  be  released. 
If  the  owner  or  agent  desires  to  pay  the  fine  fixed,  or  the  value 
of  the  property  seized  for  confiscation  or  forfeiture,  the  collector  may 
receive  the  amount  in  compromise  of  the  liability;  but  if  the  person 
is  not  satisfied  so  to  do,  he  may  appeal  to  the  collector  of  cus- 
toms for  the  Philippine  Islands,  who  is  given  authority  to  reverse, 
modify,  or  approve  the  action  of  his  subordinate,  and  likewise  to  accept 
a  compromise  as  aforesaid.  If  no  compromise  is  effected,  the  collector 
of  customs  for  the  Philippine  Islands,  upon  notice  from  the  person 
affected  that  he  will  not  consent  to  a  compromise,  must  file  a  record  of 
all  the  proceedings  in  the  court  of  customs  appeals,  which,  after  due 
notice  to  the  owner  or  agent  in  possession  of  the  j)roperty,  shall 
adjudge  as  to  whether  the  fine,  penalty,  confiscation,  or  forfeiture  ought 
or  ought  not  to  })e  enfoi-ccd,  and  to  make  proper  orders  for  the  enforce- 
ment thereof  if  such  is  the  jiulginent  of  the  court.  The  remedy  thus 
provided  is  strictly  one  in  rem  against  the  property  seized.     But  such 


(>36  REPORTS    OB'    THE    CIVIL    GOVERNMENT 

proceedings  sliall  not  affect  the  right  to  proceed  criminally  against  the 
party  offending.  In  case  no  owner  or  agent  can  be  found  or  appears 
to  claim  the  property,  notice  may  be  given  by  publication.  The  action 
of  the  court  of  customs  appeals  in  this  class  of  cases  is  made  final 
whenever  the  tine,  penalty,  contiscation,  or  forfeiture  might  not,  imder 
the  statute  or  under  the  appraisement  and  estimate  rtxed  by  the  col- 
lector, exceed  $2,000.  In  all  other  cases  under  this  provision  an 
appeal  may  be  taken  bj^  the  owner  of  the  condemned  or  confiscated 
property  to  the  supreme  court  of  the  islands. 

Fifth!  The  court  is  given  jurisdiction  to  determine  all  appeals  from 
the  decision  of  the  collector  of  customs  for  the  Philippine  Islands  in 
regard  to  the  pa3Mnent  of  duties,  fees,  charges,  and  exactions,  to  the 
court  of  customs  appeals,  and  the  decision  of  the  court  of  customs  ap- 
peals thereon  is  made  final,  except  in  cases  where  the  two  judges  of  the 
court  of  customs  appeals  shall  disagree  as  to  an}^  decision,  and  except 
also  in  cases  where  the  secretary  of  finance  and  justice  shall  certify  that 
the  public  interests  require  a  reexamination  of  certain  questions  aris- 
ing therein  by  the  supreme  court,  in  each  of  which  cases  the  supreme 
court  is  given  jurisdiction  to  consider  and  decide  the  questions,  and 
issue  a  mandate  according  to  its  decision  to  the  court  of  customs 
appeals  to  enter  judgment  in  accordance  therewith. 

Sixth.  One  judge  shall  constitute  the  court  for  trial  of  all  criminal 
cases,  as  is  the  case  in  courts  of  first  instance;  in  all  other  cases, 
appeals,  or  questions  before  the  court  of  customs  appeals,  the  court 
must  consist  of  two  judges. 

Seventh.  The  judges  of  the  court  of  customs  appeals  may  be 
required  to  perform  the  duties  of  judges  of  courts  of  first  instance  in 
any  province  in  the  islands,  or  in  the  city  of  Manila,  when  directed  in 
writing  by  the  civil  governor  so  to  do. 

Under  this  act  the  civil  governor,  with  the  advice  and  consent  of  the 
Commission,  has  appointed  Hon.  Amasa  S.  Crossfield,  of  Minnesota, 
and  Hon.  Felix  M.  Koxas,  of  Manila,  judges  of  the  court  of  customs 
appeals,  and  the}^  have  entered  upon  the  performance  of  their  duties. 
Judge  Crossfield,  prior  to  his  appointment,  was  the  regular  judge  of 
the  former  court  of  customs  appeals,  and  Judge  Koxas  had  been  serv- 
ing successfully  for  more  than  two  years  as  judge  of  the  court  of  first 
instance. 

THE   COURT   OF   LAND   REGISTRATION. 

It  was  stated  in  the  first  annual  report  of  this  office  that  a  law  had 
been  prepared  by  Commissioner  Ide  for  the  registration  of  land  titles 
under  the  Torrens  system,  so-called.  The  theory  of  the  law,  its 
importance,  probable  usefulness,  and  machinery  for  practical  opera- 
tion, were  set  forth  in  that  report,  and  need  not  be  here  repeated.  The 
law  was  enacted,  as  No.  496,  on  November  6,  1902,  to  take  effect  Jan- 
uary 1,  1903.  It  provides  for  a  special  tribunal,  to  be  called  the 
"court  of  land  registration,"  consisting  of  two  judges  to  be  appointed 
by  the  civil  governor,  with  the  advice  and  consent  of  the  Commission, 
one  to  be  termed  "judge  of  the  court  of  land  registration"  and  the 
other  "associate  judge"  thereof.  The  salary  of  the  judg-e  is  made 
15,000  per  annum  and  that  of  the  associate  judge,  and  for  an}^  associate 
judge  that  ma}^  subsequently  be  appointed  $-1,000,  with  a  clerk  receiv- 
ing a  salary  of  $2,500,  and  such  other  subordinate  employees  as  are 
necessary  for  the  practical  working  of  the  court.     It  has  jurisdiction 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  637 

throughout  the  Philippine  Islands  and  is  made  a  court  of  record.  A 
single  judge  ma}'  hold  sessions  of  the  court.  Registrars  of  deeds  are 
provided  for  each  of  the  provinces  and  for  the  city  of  Manila.  So 
many  examiners  of  titles  as  may  be  necessar}'  are  to  be  appointed  by 
the  civil  governor,  with  the  advice  and  approval  of  the  Commission. 
Their  salaries,  as  well  as  those  of  registrars,  shall  be  fixed  bj^  the 
Commission  in  proportion  to  the  amount  of  business  and  responsi- 
bility of  their  several  offices  to  which  appointments  may  be  made. 
Appeals  from  the  judgments  and  decrees  of  the  court  of  land  registra- 
tion may  be  had  to  the  court  of  tirst  instance  after  tinal  determination 
by  the  court  tirst  named,  and  such  causes  may  pass  from  the  court  of 
first  instance  to  the  supreme  court  in  the  same  manner  as  other  causes 
pending  in  the  court  of  first  instance.  When  the  only  determinative 
question  in  regard  to  a  title  is  purely  one  of  law  the  case  may  be 
reported  directly  from  the  court  of  land  registration  to  the  supreme 
court  for  final  decision.  Persons  desiring  to  take  the  benefit  of  the 
act  must  apply  in  writing  for  registration  of  title,  describing  the  prem- 
ises sought  to  be  brought  under  the  act.  Upon  filing  of  the  appli- 
plication,  together  with  a  plan  of  the  land  and  all  muniments  of  title 
tiled  therewith,  it  is  referred  to  one  of  the  examiners  of  titles,  whose 
duty  it  is  to  make  thorough  investigation  of  the  records  and  all  the 
facts  iri  the  application  and  file  a  report  thereon,  with  a  certificate  of 
his  opinion  concerning  the  title.  If  the  opinion  of  the  examiner  is 
adverse  to  the  applicant,  he  is  given  a  reasonable  time  in  which  to 
elect  to  proceed  further  or  to  withdraw  his  application.  If  the  opmion 
of  the  examiner  is  favorable,  or  if  the  applicant,  after  an  adverse 
opinion  of  the  examiner,  elects  to  proceed  further,  due  notice  is  given 
by  publication  and  otherwise  to  all  persons  claiming  an  adverse 
interest  in  the  land,  or  in  any  way  opposed  to  its  registration,  to 
appear  before  the  court  at  a  time  and  place  stated,  and  show  cause 
why  the  petition  for  registration  should  not  be  granted.  At  the  time 
and  place  appointed  the  court  proceeds  to  such  action  as  the  facts 
warrant,  after  hearing  the  parties  and  other  evidence,  and  examining 
all  the  documents  in  the  case,  including  the  report  of  the  examiner  of 
titles.  The  court  is  not  liound  b}'  the  report  of  the  examiner  of  titles, 
either  when  there  is  or  is  not  an  appearance  to  contest  the  title.  If 
the  court  finds  at  the  hearing  that  the  applicant  has  title,  and  that  the 
title  is  a  proper  one  for  confirmation,  a  decree  of  registration  and 
confirmation  is  entered,  and  such  decree  binds  the  land  and  quiets  the 
title  thereto  against  all  the  world,  including  the  insular  government 
and  all  branches  thereof,  subject,  however,  to  the  right  of  an}'  person 
depri\'ed  of  any  land  or  interest  therein  by  decree  of  registration 
obtaincid  })v  fraud,  to  file  in  the  court  of  land  registration  a  petition 
for  review  within  one  year  after  the  rendering  of  the  decree,  pro- 
vided no  innocent  pui-chaser  for  \ahie  has  acquired  an  interest.  But 
any  person  injured  l)y  such  decree  in  any  case  may  pursue  his 
remedy  })y  action  for  damages  against  the  applicant  or  an}^  other 
person  for  fraud  in  procuring  tlui  decree,  and  he  likewise  may  have 
recourse  against  the  assurance  fund  hereinafter  mentioned.  Inunedi- 
ately  upon  entering  the  decree  of  registration,  a  certified  copy,  under 
the  seal  of  the  court,  is  sent  to  the  registrar  of  deeds  for  the  proper 
province  or  city  in  which  the  land  lies,  who  transcribes  the  same  in  a 
registration  Ijook,  which  constitutes  the  original  certificate  of  title,  all 
certificates    being  munbered   consecutively,   and   an   exact   duplicate 


638  KKI-uKTS    OF    TIIK    CIVIL    (JOVKRNMKNT 

therot)f  is  I.ssiuhI  to  the  owner  and  constitutes  his  iiiuissailable  title. 
Land  onec  I'ej^isteied  under  tln>  act  forever  remains  registered  land, 
the  registration  being  binding  upon  the  ai)i)lieant  and  all  successors  of 
title.  The  owner's  (luplicate  certiticat(>  is  made  conchisive  evidence  in 
all  courts  as  to  all  matters  contained  th(>rein.  Su])se(^uent  to  registra- 
tion registered  land  may  ])c  dealt  with  l)y  conveyance,  mortgage,  lease, 
or  other  voluntary  instrument,  l)ut  such  instrument  operates  only  as  a 
contract  between  the  parties  and  evidence  of  authority  to  the  registrar 
or  clerk  of  deeds  (o  make  registration.  Tlie  fact  of  registration  is  the 
operative  act  to  convey  and  ali'ect  the  land.  Upon  the  conveyance  in 
fee  a  uqw  certilicatc  may  be  issued  to  the  purchaser,  the  old  one  being 
can(^eled.  All  incumbrances  upon  the  laud  l)y  way  of  mortgage,  lease, 
or  otherwise,  must  bo  indorsed  upon  the  back  of  the  original  certificate 
and  the  duplicate  in  each  case,  so  that  the  original  ccrtilicate  and  dupli- 
cate shall  at  all  times  shoAV  the  exact  state  of  the  title  and  obviate  all 
necessity  for  further  investigation.  Registered  land  remains  liable  to 
attachment  under  process  or  lial)le  to  an  execution  or  to  liens  of  an}'  kind 
attaching  to  real  estate  by  operation  of  law  and  to  the  ordinary'  laws  of 
descent,  right  of  partition,  and  right  of  taking  the  same  by  eminent 
domain;  but  all  such  attachments,  levies,  liens,  acquisition  of  interest  by 
descent,  partition,  or  taking  by  eminent  domain  are  required  to  be  regis- 
tered and  indorsed  upon  the  original  certiticatc  and  the  duplicate  thereof. 
Similar  provisions  are  made  for  cases  of  bankruptcy,  insolvency,  and 
analogous  proceedings.  Upon  the  re"-istration  of  laud  the  owner  is 
re<[uired  to  pay  to  the  registrar  of  deeds  one-tenth  of  1  per  cent  of  the 
assessed  value  of  the  real  estate,  on  the  basis  of  the  last  assessment  for 
municipal  taxation,  as  an  assurance  fund.  This  fund  is  paid  into  the 
treasur}^  of  the  Philippine  Islands  and  kept  securely  invested,  upon 
the  api^roval  of  the  civil  governor,  and  any  person  who,  without  neg- 
ligence on  his  pai't,  sustains  loss  or  damage  through  an}^  omission, 
mistake,  or  misfeasance  of  the  clerk  of  the  court,  i-egistrar  of  deeds, 
or  of  any  examiner  of  titles,  or  of  any  deputy  or  clerk  of  the  registrar 
of  deeds  in  the  performance  of  their  respective  duties  under  the  pro- 
visions of  the  act,  and  any  person  who  is  wrongfully  deprived  of  any 
land  or  any  interest  therein,  without  negligence  on  his  part,  through 
the  l)ringing  of  the  same  under  the  provisions  of  the  act,  or  by  the 
registration  of  any  other  person  as  owner  of  such  land,  or  by  any  mis- 
take, omission,  or  misdescription  in  an}^  certificate  or  owner's  duplicate, 
or  b}^  an}^  erroneous  cancellation,  and  who  1)Y  the  provisions  of  the  act 
is  barred  from  bringing  an  action  for  the  recover}^  of  the  land,  may 
bring  in  any  court  of  competent  jurisdiction  an  action  against  the 
treasurer  of  the  Philippine  Islands  for  the  recovery  of  damages,  to  be 
paid  out  of  the  assurance  fund.  If  the  assurance  fund  should  at  any 
time  prove  insuflicient  to  meet  the  amount  called  for  by  judgments 
against  it,  the  deficiency  is  to  be  made  up  from  any  funds  in  the  treas- 
ury not  otherwise  appropriated.  In  case  of  such  payment,  the  insular 
treasurer  is  subrogated  to  all  the  rights  of  the  plaintifl'  against  any 
other  parties  or  securities.  Adequate  provisions  arc  made  for  the 
issuing  of  neW'  duplicate  certificates  in  case  the  original  one  is  lost  or 
destroyed,  or  if,  under  certain  circumstances,  they  can  not  be  pro- 
duced for  other  reasons.  The  act  provides  a  scale  of  fees  for  registra- 
tion and  imposes  penalties  for  perjur}^  or  fraud  in  relation  to  any  of 
its  provisions.  It  is  made  applicable  to  all  public  lands  belonging  to 
the  Government  of  the  United  States  or  to  the  government  of  the 


OB^    THE    rniLIPPINE    ISLANDS,    liK)0-1903.  639 

Philippine  Islands  that  are  alienated,  granted,  or  conve^^ed  after  its 
enactment.  As  to  lands  not  brought  under  the  operations  of  the  new 
system,  the  existing  sj'stem  is  continued  in  force,  the  act  not  being 
made  compulsory  at  present  except  as  to  public  lands. 

The  act  likewise  changes  the  notarial  system  that  has  heretofore 
existed  in  the  islands  and  substitutes,  substantially,  the  American  nota- 
rial system.  Under  the  Spanish  system  all  conyeyances  of  land  and 
interests  therein  were  pul^lic  documents,  the  solemnities  pertaining 
thereto  to  be  executed  before  a  notary'  public,  who  retained  in  his  pro- 
tocols the  original  of  such  instruments  and  deliyered  to  the  parties  onl}^ 
certified  copies  thereof.  Under  the  land  registration  act  all  notaries 
public  in  the  islands  and  all  other  officers  and  persons  haying  in  their 
possession  notarial  books,  records,  protocols,  archiyes,  and  other  docu- 
ments are  required  immediatel}^  to  deliyer  the  same  to  the  chief  of  the 
bureau  of  archiyes,  who  is  hereafter  to  be  the  permanent  custodian 
thereof.  The  act  provides  a  system  of  forms  for  conyej'ances,  mort- 
gages, leases,  releases,  and  discharges  ali'ecting  lands,  whether  regis- 
tered under  the  act  or  unregistered,  and  proyides  that  conyeyances 
made  in  accordance  with  those  forms  shall  l^c  as  effectiye  to  conyey, 
encumber,  lease,  release,  discharge,  or  bind  the  lands  as  if  made  in 
accordance  with  the  more  prolix  forms  heretofore  in  use.  The  forms 
are  simple,  easily  understood,  and  yery  concise.  Their  use  greatly 
diminishes  the  expense  of  dealing  in  lands. 

Under  this  act,  Hon.  Simplicio  del  Rosario,  of  Manila,  was  duly 
appointed  judge,  and  Hon.  D.  K.  Williams,  of  California  and  of  the 
Philippine  Islands,  who  had  had  considerable  experience  in  inyestiga- 
tion  of  land  titles  in  Mexico,  associate  judge.  Judge  Posario  is  an 
excellent  lawyer,  residing  in  Manila,  who  has  long  been  one  of  the 
registrars  of  deeds  for  a  portion  of  the  city  of  Manila.  Judge  Wil- 
liams was  a  member  of  the  bar  of  the  State  of  California,  and  has 
resided  in  the  Philippine  Islands  since  June,  1900,  serying  for  a  time 
as  priyate  secretary  to  Commissioner  Moses,  and  sul)sequently  as  assist- 
ant secretary  and  secretary  to  the  Philippine  Conunission.  He  has  a 
thorough  knowledge  of  the  Spanish  language,  aside  from  his  legal 
attainments. 

Upon  the  organization  of  the  court  in  February  it  prepared  and  pub- 
lished forms,  blanks,  and  l)ooks  of  all  kinds  for  its  procedure  and  for 
use  in  the  records  of  the  registrars  of  deeds.  It  adopted  rules  and 
regulations,  caused  them  to  be  printed  in  the  Spanish  and  English 
liuiguages,  and  distributed  to  all  judges  and  clerks  of  the  courts  of  first 
instance,  all  attorneys  in  the  islands,  and  to  each  registrar  of  deeds. 
Up  to  the  1st  day  of  September,  1903,  144  applications  for  registra- 
tion had  been  filed  with  the  court,  from  19  provinces  and  from  the  city 
of  Manila,  covering  property  with  a  value  of  $1, 314,963. 20  U.  S.  cur- 
rency, exclusive  of  the  land  seta))art  as  civil  or  militar\^  reservations. 
The  munber  of  applications  in  tin;  brief  tinu;  that  the  court  has  been 
available  for  the  transaction  of  l)usiness  indicates  that  its  ])i-ovisions 
arc  being  more  rapidly  availed  of  than  has  usually  bcicn  the  case  in 
other  countries  where  the  system  has  l)een  introchict'd.  Pil'ty  applica- 
tions originating  in  tiiecityof  Manila  have  been  (inall^- determined  b}'^ 
the  coui't,  and  others  are  pending  decree.  An  appeal  has  been  taken 
upon  one  case,  adverse  claims  having  been  filed  in  J. S  cases.  Under 
subsequent  provisions  of  law,  the  court  of  land  I'egistration  is  author- 
iszcd  to  pass  upon  the  titles  of  all  occupants  of  lands  set  apart  for 


640  KEPORTS    OF    THE    CIVIL    (JOVEKNMENT 

military  reservations.  ITiuler  the  last-naiucd  act  the  juilitary  coni- 
inander  of  the  Division  of  the  riiilippin(\s  has  lik;d  certiHcations  as  to 
lands  set  apart  for  military  reservations  at  Corrogidor,  Mariveles,  Los 
Banos,  runta  Calumpan,  Tacloban,  Calbayoo-,  Lucena,  Nneva  Cacercs, 
Iloilo,  Ano'cles,  Pasay,  Zaml)oanga,  Ornioc,  Daraga,  Salomague,  and 
San  Fernando.  Notices  have  ))een  issued  for  service  upon  all  parties 
interested  in  such  land,  in  or(U>r  that  it  may  he  brought  uncfer  the 
operation  of  the  land  registration  act.  V>y  snbse(pieut  action  of  the 
C'onnnission,  land  desired  to  be  reserved  by  the  civil  government  for 
})ul)lic  use  may  be  certitied  to  the  court  of  land  registration  for  its 
determination  of  title.  Thirty -six  certilications  for  civil  reservations 
have  been  received  by  the  court  from  the  civil  governoi",  34  of  the 
same  being  lands  reserved  for  light-house  purposes,  one  for  the  island 
of  Batan  and  one  for  Baguio,  province  of  Bcnguet,  where  the  summer 
capital  of  the  insular  government  is  expected  to  be  established.  All 
persons  claiming  an  interest  in  the  lands  set  apart  for  military  or  civil 
reservations  are  required  to  lile  their  claims  within  sixty  days  from 
the  notice  of  such  certification.  A  large  amount  of  work  of  the  char- 
acter last  indicat<>d  will  devolve  upon  the  court. 

The  operations  of  the  act,  of  course,  are  not  thoroughly  miderstood 
by  natives,  and  to  enable  them  more  thorougidy  to  comprehend  their 
rights  and  the  advantages  of  the  system,  articles  explaining  the  act 
have  been  published  in  the  daily  papers,  in  both  English  and  Spanish, 
and  in  the  Official  Gazette.  Blank  forms  have  been  mailed  to  all 
provincial  treasurers,  as  well  as  instructions.  Circulars  have  been 
addressed  to  the  banks,  calling  attention  to  the  greater  security  for 
auortgage  loans  offered  by  registered  lands.  The  operation  of  the  act 
is  facilitated  by  the  fact  that  proposed  purchasers  of  lands  often  refuse 
to  take  a  title  until  it  has  been  registered.  This  consideration  will  in 
time  tend  largely  to  increase  the  work  of  the  court.  The  work  of  the 
court  is  made  difficult  by  tlie  multiplicity  of  "royal  decrees,"  by 
which  titles  have  been  acquired,  the  lack  of  a  proper  system  of  regis- 
tration, the  loss  of  the  greater  portion  of  the  land  records,  and  the 
fact  that  the  public  domain  has  never  been  surveyed  and  has  been" 
occupied  b}^  the  people  for  generations;  but  the  fact  that  it  offers  an 
avenue  by  which  an  absolute  and  guaranteed  title  can  be  evolved  from 
the  general  uncertainty  now  prevailing  offers  to  capital  a  considera- 
tion that  nuist  form  the  basis  for  any  considerable  investment.  From 
the  results  that  Ivdva  thus  far  been  attained,  it  is  apparent  that  there 
is  a  wide  field  of  usefulness  for  the  court  of  land  registration,  and  that 
ultimately  the  law  will  prove  to  have  been  a  measure  most  conducive 
Jdi)  the  development  of  prosperity  and  the  security_Qf  inveiitnientjn 
"^^tne  islands. 

TtTeTeport  of  the  judges  of  the  court  of  land  registration  for  the 
period  from  February  1  to  September  1,  1903,  is  hereto  annexed  and 
marked  "Exhibits." 

attorney-general's  ofeice. 

The  attorney-general  and  solicitor-general  have  transacted  a  large 
amount  of  })usiness  during  the  period  covered  by  this  report.  Their 
services  have  l)een  efficient  and  valuable.  During  the  year,  the  assist- 
ant attorney-general,  John  W.  Haussermann,  resigned  to  enter  the 
practice  of  his  profession  in  the  city  of  Manila,  and  he  was  succeeded 
by  W.  L.  Goldsborough,  formerly  city  attorney  of  the  city  of  Manila. 


OF    THE    PHILTPPINE    ISLANDS,    1900-1903.  641 

The  report  of  the  attorney-general  covering  the  period  from  Sep- 
tember 1,  1902,  to  September  1,  1903,  i.s  hereto  annexed  and  marked 
'^Exhibits." 

During  the  year  453  written  opinions  have  been  furnished  in  the 
office  of  the  attorney-general;  193  cases  in  the  supreme  court  in  which 
the  attorney-general  or  solicitor-general  appeared  have  been  disposed 
of  by  brief,  and  84  by  motion.  Six  hundred  and  twenty-one  petitions 
for  pardons  have  been  passed  upon,  and  151  appointments  of  employees 
in  the  bureau  of  justice  have  been  made.  The  work  of  the  courts  is 
likewise  summarized  in  the  report.  In  the  supreme  court  decisions 
have  been  written  and  opinions  hied  in  376  cases,  petitions  for  extraor- 
dinary relief  in  22  cases,  and  19  petitions  for  writs  of  habeas  corpus 
have  been  disposed  of.  In  the  court  of  first  instance  in  the  cit}^  of 
Manila,  during  the  fiscal  year  1903,  473  civil  cases  were  filed,  476  civil 
cases  were  decided,  75  civil  cases  were  dismissed  on  motion  of  plaintiff, 
and  442  civil  cases  were  pending  at  the  close  of  the  fiscal  3^ear.  During 
the  same  period  367  criminal  cases  were  filed,  269  were  decided,  103 
dismissed  on  motion  of  the  prosecutor,  leaving  still  pending  82  cases. 
In  the  courts  of  first  instance  in  the  provinces,  during  the  fiscal  j^ear 
1903,  2,430  civil  cases  were  filed,  1,316  were  decided,  290  were  dis- 
missed on  motion  of  the  plaintiff,  and  1,733  are  pending.  During  the 
same  period  5,520  criminal  cases  were  filed,  4,125  were  decided,  1,634 
dismissed  on  motion  of  the  prosecution,  and  1,684  are  pending-. 

CRIMINAL   CODE. 

The  new  criminal  code  prepared  l)}^  Commissioner  Wright  has  not 
yet  been  enacted,  owing  to  the  press  of  other  business  resting  upon  the 
Commission.  It  ought,  however,  to  be  stated  that  since  September  1, 
1903,  and  prior  to  the  date  of  this  report,  the  proposed  code  has  been 
brought  up  for  public  discussion  in  open  session  of  the  Commission, 
and  public  hearings  have  been  held  for  man}'  days.  The  Filipino  law- 
yers mainly  opposed  the  enactment  of  the  new  code  on  the  ground 
that  it  changes  the  theory  of  the  law  which  has  been  long  in  operation 
in  the  islands.  The  American  lawyers  who  appeared  before  the  Com- 
mission mainly  advocated  the  new  code,  as  being  in  harmony  with 
modern  rules  of  law  and  with  the  systems  prevailing  in  the  Llnited 
States.  Filial  action  has  not  yet  been  taken.  It  will  undoubtedly  be 
the  purpose  of  the  Conunission  to  adhere  so  far  as  may  be  practicable 
to  the  existing  code,  eliminating  all  those  provisions  of  that  code  which 
pertain  to  the  sovereignty  of  S|)ain  and  to  tlie  union  of  chui'ch  and 
state,  and  to  the  rigid  restriction  of  discretion  on  the  part  of  judges, 
to  the  right  of  private  individuals  to  conti'ol  and  conqiromise  criminal 
prosecutions,  or  to  use  them  for  Ihe  purpose  of  l)lackmailing  and  extor- 
tion. It  is  believed  that  a  code  can  l)c  enacted  within  a  short  time 
now,  in  view  of  the  valuable  suggestions  received  upon  the  public 
heai-ing,  that  Avill  meet  the  reas(5iiable  desires  of  both  of  the  advocates 
of  th(!  new  and  the  old  code. 

CODE   OF   CUIMINAL   rROCEDURE. 

The  new  code  of  criminal  procedure  referred  to  in  the  last  report 
of  this  ollicc  as  having  been  pre|)are(l  ])y  Commissioner  Wright  has 
not  yet  been  enacted  by  the  Conmiission,  owing  to  a  press  of  other 
business.  It  is  believed  that  it  will  be  acted  upon  early  in  the  year 
1904. 


642  REPORTS    OF    THE    CIVIL    (H^'ERNMENT 

CHANGES   IN    THE    PERSONNEL   OF   THE    COURTS. 

Since  the  dato  of  the  lust  roport  from  this  olKce,  two  vacancies  have 
occurred  in  the  otHce  of  judo-o  of  the  sui)r(Mne  court.  Hon.  James  F. 
Smith,  one  of  the  judo-os  of  the  supreme  court,  was  on  the  1st  day  of 
Jamiarv,  1003,  appointed  to  the  Philippine  Commission,  to  succeed 
Commissioner  Bernard  Moses,  resigned.  To  hll  the  vacancy  in  the 
supreme  court  thus  made,  Hon.  John  T.  McDonough,  of  New  York, 
was  appointed  by  the  President  of  the  United  States,  in  accordance 
with  the  provisions  of  the  act  of  Congress,  entitled,  "An  act  tempo- 
rarily to  provide  for  the  administration  of  the  affairs  of  civil  govern- 
ment in  the  Philippine  Islands,  and  for  other  pur])oses."  Judge 
jNIcDonough  was  formerly  secretar}^  of  state  of  the  State  of  New 
York,  but  had  not  seen  prior  sei'vice  in  the  Philippine  Islands.  On 
the  2;:>d  day  of  May,  1908,  Hon.  Fletcher  Ladd  resigned  his  position 
as  one  of  the  judges  of  the  supreme  court  to  return  to  his  home  in  the 
States  on  account  of  illness  in  his  famil}'.  Judge  Ladd  had  acquired 
a  thorough  knowledge  of  the  Spanish  language  and  of  the  civil  law 
prevailing  in  the  islands,  and  had  proven  himself  to  be  a  thoroughly' 
scholarly,  able,  and  useful  judge.  His  retirement  from  the  service  is 
greatly  regretted.  A  telegram  just  received  announcing  Judge  Ladd's 
death  is  the  cause  of  profound  sorrow  to  all  who  knew  him  in  these 
islands.  To  till  the  vacancy  thus  created,  Hon.  E.  Finle}'  Johnson,  of 
Michigan,  was  appointed  by  the  President  on  the  8th  day  of  .lune,  1903, 
and  has  since  entered  upon  the  duties  of  his  office.  Judge  Johnson 
had  served  as  judge  of  the  court  of  first  instance  in  the  Philippine 
Islands  for  more  than  two  years  at  the  time  of  his  promotion,  and  by 
efficient  and  faithful  service  had  merited  the  promotion  which  he 
received.  Hon.  Lyman  J.  Carlock,  judge  of  the  eleventh  judicial 
district,  died  of  cholera  on  the  20th  da,y  of  April,  1903,  while  in  the 
performance  of  his  dut}"  in  the  island  of  Bohol.  Judge  Carlock  had 
acqiured  a  thorough  knowledge  of  the  Spanish  language,  and  a  knowl- 
edge of  the  lo^^-al  dialect,  aside  from  the  legal  attainments  wdiich  he 
possessed  at  the  time  of  his  entering  upon  the  duties  as  judge.  He 
had  become  greatlj-  interested  in  the  people,  and  had  proven  a  true 
fricmd  to  them,  and  had  won  their  affection  and  regard.  His  death  is  a 
very  serious  loss  to  the  interests  of  good  government  in  these  islands. 
He  lost  his  life  in  the  interest  of  his  country  as  truly  as  though  he  had 
died  upon  the  battlefield.  Judge  W.  H.  Pope,  of  the  twelftli  judicial 
district,  b}"  reason  of  tuberculosis,  was  compelled  to  leave  the  islands 
and  seek  to  restore  his  health  in  a  drier  climate.  The  retirement  of 
Judge  Pope  is  likewise  a  distinct  loss.  He  was  one  of  the  best  of  the 
judges  of  the  court  of  first  instance.  By  his  geniality,  courtesy,  kind- 
ness, and  interest  in  the  people  he  had  made  himself  a  source  of  wide 
usefulness  here.  His  qualities  have  since  been  recognized  l)y  the  Presi- 
dent of  the  United  States  by  appointing  him  as  a  judge  of  the  supremo 
court  for  the  Territory  of  New  Mexico.  On  the  1st  daj^  of  April, 
1903,  Judge  Isidro  Paredes,  of  the  first  judicial  district,  resigned,  and 
was  appointed  assistant  to  the  solicitor-general,  which  position  he  now 
holds. 

To  fill  the  vacancies  thus  created  in  the  courts  of  first  instance,  and 
also  the  new  offices  made  by  provision  for  two  additional  judicial  dis- 
tricts by  Act  No.  SOT,  the  following  appointments  have  been  made: 

Hon.  Julio  Llorente,  of  Cebu;  Hon.  John  C.  Sweeney,  of  Tennessee; 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  643 

Hon.  Dionisio  Changco,  of  Manila;  Hon.  Charles  H.  Burritt,  of  Mon- 
tana; Hon.  Miguel  Logarta,  of  Cebu,  and  Hon.  A.  E.  McCa])e,  of 
Michigan.  Judge  Llorente  was  a  law^^er  of  distinction,  and  had  held 
important  positions  under  the  Spanish  regime,  had  been  one  of 
the  judges  of  the  supreme  court  of  the  Philippine  Islands  during  a 
portion  of  the  time  of  military  government  under  American  authoritj', 
and  had  served  for  a  considerable  period  prior  to  his  appointment  as 
governor  of  the  province  of  Cel)u,  and  subsequently,  at  great  personal 
risk  to  himself,  as  governor  of  the  province  of  8amar.  Judge  Sweeney 
came  to  the  islands  in  the  year  li)02,  after  an  active  practice  of  his 
profession  for  more  than  twent^'-tivc  3'ears,  and  served  for  a  time  as 
prosecuting  attorney  for  the  city  of  Manila,  prior  to  his  appointment 
as  judge  of  the  court  of  lirst  instance.  Judge  Changco  had  served  for 
a  considerable  time  as  an  assistant  prosecuting  attorney  for  the  city  of 
Manila  prior  to  his  promotion.  Judge  Burritt  lias  l)een  in  the  Philip- 
pine Islands  since  181>8,  having  served  in  the  Volunteer  Army  of  the 
United  States  during  a  portion  of  the  time  as  lieutenant,  and  subse- 
quentl}^  as  chief  of  the  mining  bureau,  where  he  had  performed  effi- 
cient service.  Judge  Logarta,  prior  to  his  appointment,  served  as 
fiscal  for  the  province  of  Cebu.  Judge  McCabe  has  ]>een  in  the  islands 
since  the, vear  1898,  having  served  as  a  lieutenant  in  the  United  States 
Volunteer  Arm}',  and  subsequently  as  assistant  chief  of  the  forestr}' 
bureau,  and  after  that  time  had  been  engaged  for  a  time  in  the  prac- 
tice of  his  profession  in  Manila  with  the  firm  of  Hartigan,  Marple, 
Solignac,  McCabe  &  Gutierrez. 

INSULAR   COLD-STORAGE   AND   ICE    PLANT. 

During  the  fiscal  year  1903  substantially  the  whole  of  the  cold- 
storage  space  available  in  the  insular  cold-storage  and  ice  plant  was 
occupied  by  the  militar}'  authorities  under  a  contract  entered  into 
between  the  civil  government  and  the  militar}-  authorities,  by  virtue 
of  which  0^  cents  per  cu))ic  foot  per  month  was  paid  by  the  Army  for 
cold-storage  space.  The  price  of  3^  cents  per  culnc  foot  per  month 
was  a  very  low  one,  and  resulted  in  making  a  great  saving  to  the  Arm}- 
in  the  expense  it  had  before  that  time  incurred  in  the  use  of  refrigerat- 
ing ships  for  that  purpose.  The  pi'icc  was  fixed,  in  connection  with 
the  probable  earnings  of  the  plant  from  the  sale  of  ice,  upon  the  theor}' 
that  the  plant  ought  to  receive,  after  making  a  reasonal)le  allowance 
for  depreciation,  a  fair  return  upon  the  amount  of  the  capital  invested. 
Under  tlu^  operation  of  that  contract  the  total  revenue  received  by  the 
plant  during  the  fiscal  year  1903  from  the  Army  for  cold  storage  was 
$179,070. ()().  There  was  likewise  receivedf  rom  the  United  States  Navy 
fora  small  amountof  space  available  for  it$3,592.14.  During  thesamc 
pcrioti  the  plant  has  received  for  ice  sold  to  the  United  States  Army  and 
Navy  $00,090.57,  and  for  ice  sold  to  all  others,  including  civil  insti- 
tutions, civil  employees,  militar}^  and  naval  oiliceis,  and  cash  sales, 
$78,004,70,  It  received  additional  revenues  from  <)tlu>r  sourcc^s,  mainly 
for  power  furnished  for  electric  1  ights,  for  distilled  watxu",  and  for  rent  of 
launches,  $1,823.80,  making  a  total  i-evenue  of  $332, 191. 17.  The  total 
expenditures  for  the  same  jxM-iod  were  $198,338.83,  leaving  an  excess  of 
revenues  over  expenditures  of  $133,855.31,  which  would  be  a  more 
than  satisfactory  revenue,  provided  any  icasonable  allowance  had  been 
made  for  depreciation  of  the  plant,  but  no  such  allowance  was  made. 


644  REPORTS    OK    THE    CIVIL    OOVERNMENT 

Ordinarily,  nianauors  of  mamifacluriiio-  plants  make  an  allowance  of 
10  per  eent  for  depreciation  in  tlu»  plant  per  annum.  If  such  an  allow- 
ance were  made  in  the  i)r(\sent  case,  which  manifestly  ou^-lit  to  be 
made  in  view  of  the  actual  and  manifest  depi'cciation  in  thc^,  maciuncry 
and  the  whole  land  and  water  transportation  plant,  the  net  income 
would  have  been  very  small  and  would  furnish  no  reasonable  return 
upon  the  amount  invested.  That  an  allowance  for  depreciation  is 
indispensabl}^  necessary  in  a  counti-y  like  this,  subject  to  earthquakes, 
is  even  more  manifest. 

By  virtue  of  a  contract  made  b(>tween  the  Army  and  the  civil  gov- 
ernment for  the  tiscal  year  1!)()-1-,  the  amount  of  cold  stoi-age  rented  by 
the  Army  is  materially  diminished,  while  its  rat(^  of  rental  per  cubic 
foot  per  month  is  the  same.  The  result  is  practically  a  reduction  of 
^»)0,0()(>  per  year  in  the  amount  that  will  be  received  b}'  the  plant  for 
cold-storao-e  space.  The  cold-storag-e  space  not  taken  by  the  Army 
has  remained  unutilized  and  unproductive.  It  is  believed  that  the  price 
per  cubic  foot  now  paid  by  the  Army  is  inadequate  in  view  of  the 
smaller  space  which  it  occupies  and  the  diminished  returns  made  to 
the  insular  government. 

The  report  of  the  operations  of  the  plant  for  the  tiscal  year  1903, 
coupled  with  an  additional  report  for  the  months  of  July  and  August, 
ll>Uo,  prepared  by  Capt,  L.  8.  iloudiez,  Twenty-fifth  Infantry  U.  kS. 
Army,  who  was  superintendent  of  the  plant  down  to  September  1, 
1903,  is  hereto  annexed  and  marked  "  Exhibit  4."  Upon  an  inspection 
of  the  total  earnings  of  the  plant  for  the  months  of  July  and  August, 
1903,  as  shown  by  said  report,  it  appears  that  the  total  revenues  for 
cold  storage  and  ice  and  miscellaneous  sources,  amounted  to  $51,820.86 
United  States  money,  and  the  total  expenditures  to  $40,675.51,  mak- 
ing the  excess  of  revenues  over  expenditures  of  $11,145.35  for  two 
months.  The  total  excess  of  revenues  over  expenditures  for  the  whole 
tiscal  year  1904,  on  the  same  basis,  would  l)e  six  times  that  amount,  or 
$66,872.10,  a  sum  which  is  hardly  large  enough  to  cover  allowance 
that  ought  to  be  made  for  depreciation  in  the  ]3lant,  to  say  nothing  of 
any  income  upon  the  investment.  The  sales  of  ice  have  been  gradu- 
ally increasing,  owing  to  the  increased  consumption  b}'  reason  of  a 
larger  number  of  civil  employees,  the  larger  uumber  of  civil  institu- 
tions that  use  ice,  and  larger  cash  sales  at  the  plant.  This  last  item, 
"cash  sales  at  the  plant,"  could  be  increased  if  it  was  the  policy  of 
the  government  to  enter  into  competition  with  private  establishments. 
Such  not  being  its  policy,  it  is  not  probable  that  that  source  of  revenue 
can  be  very  much  increased  over  its  present  amount,  but  in  the  hands 
of  private  owners  (;ould  })e  largely  increased.  It  is  believed  that  the 
Army  can  well  afford  to  pay  a  larger  price  per  cubic  foot  for  cold-storage 
space  than  is  now  paid,  and  still  secure  nuich  more  profitable  results 
than  f)y  any  other  means.  During  the  latter  portion  of  the  tiscal  year 
1903  the  ice-making  facilities  were  taxed  to  the  full  limit.  The 
capacity  of  the  plant  for  making  ice  can  be  very  largely  increased  by 
the  expenditure  of  practically  $10,000  more,  United  States  money, 
and  such  expenditure  is  recommended  to  enable  the  plant  to  be  more 
productive  and  to  meet  the  demands  made  upon  it.  It  is  not  probable 
that  the  demands  for  ice  will  ever  be  less  than  at  present;  the  proba- 
bilit}'  is  that  those  demands  will  increase.  The  ice-consuming  habit 
seems  to  have  become  thoroughly  fastened  upon  the  inhabitants  of 
Manila  and  the  surrounding  country,  and  it  is  improl)able  that  that 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  645 

habit  will  relax  its  hold.  Several  inquiries  have  ])eeii  made  during 
the  year  in  regard  to  a  possible  sale  of  the  plant.  The  land  whereon 
the  plant  is  situated  is  so  valual)le,  and  the  plant,  in  the  hands  of  a 
private  individual  or  corporation,  can  be  made  so  much  more  profitable 
than  in  the  hands  of  the  government,  that  it  is  believed,  as  stated  in 
the  last  report  from  this  office,  that  the  entire  property,  including 
transportation  equipment,  ought  not  to  be  sold  for  less  than  $1,000,000 
United  States  mone}'. 

CURRENCY. 

The  evils  resulting  from  the  rapid  Huctuations  in  the  value  of  the 
Mexican  silver  dollars  and  Spanish-Filipino  currency  in  the  islands 
were  full}^  set  forth  in  the  last  annual  report  from  this  office.  It  was 
there  stated  that  between  flanuary  1  and  October  25,  1002,  the  insular 
government  had  sustained  an  aggregate  loss  of  ^956,7.50. 37i,  measured 
in  gold  dollars,  by  reason  of  shrinkage  in  the  value  of  the  silver  in 
the  treasury.  That  loss  still  continued  to  increase  by  the  successive 
changes  in  the  official  ratio  betsveen  local  currency  and  gold  until  the 
aggregate  loss  reached  the  sum  of  §1,015,5(32.38  on  June  30,  1903. 
During  the  latter  portion  of  the  fiscal  year  1003,  however,  the  official 
ratio  had  been  made  such  that  large  sums  of  United  States  mone}'  had 
been  paid  into  the  treasury  instead  of  local  currency,  so  that  the  amount 
of  local  currency  .steadily  diminished  and  of  United  States  money 
steadily  increased.  The  value  of  silver  in  the  markets  of  the  world 
conmienced  to  rise  in  February,  1903,  and  has  continued  to  rise,  with 
more  or  less  fluctuations,  down  to  near  the  1st  of  November,  1903, 
the  date  of  this  report.  But  the  amount  of  local  currenc}'  remaining 
in  the  treasury  during  the  period  of  the  rise  in  price  of  silver  was  so 
small  compared  with  what  it  had  been  during  the  period  of  deprecia- 
tion in  the  price  of  silver  that  but  a  very'small  portion  of  the  losses 
caused  by  tlie  depreciation  were  recouped. 

During  the  period  last  referred  to  there  was  another  source  of  loss 
to  the  treasury  in  the  fluctuating  currency.  The  official  ratio  between 
the  two  currencies  was  maintained  at  such  a  rate  that  very  little  Mexi- 
can or  local  currency  came  into  the  treasury'  in  payment  of  public 
dues,  it  being  more  profitable  to  pay  in  United  States  money  than  in 
local  currency;  but  as  the  assets  of  the  government  were  largely  in 
local  currency  it  necessarily  made  its  payments  in  local  currency,  and 
at  the  officiiil  I'atio.  This  i-(\sulted  in  a  matcM'ially  larger  number  of 
Mexican  dollars  being  paid  out  to  satisfy  the  government's  current 
liabilities  than  would  ha\e  been  paid  out  had  the  official  ratio  and  the 
commercial  ratio  been  the  same.  From  this  scnirce  there  was  a  large 
loss  to  the  treasury. 

The  following  are  the  ratios  in  efl'ect  during  the  fiscal  year  1903 
between  Mexican  or  local  curi'ency  and  money  of  th(^  United  States: 

Fronj  Juh'  1  to  7,  1002,  tin;  ratio  existing  was  !|^2.27  Mexican  cur- 
rency for  $1  of  mojiev  of  the  United  States;  ,Iulv  7  to  Sept<Mnber  23, 
$2.35  to  $1;  Septemr)cr23  to  October  2»;,  J{^2.40"to  $1;  Octol)er  2()  to 
November  12,  $2.40  to  $1 ;  November  12  to  November  2:5,  §2.50  to  $1; 
November  23,  1002,  to  January  25,  l!»03,  §2.00  to§l;  Januarv  25  to 
March  11,  §2.00  to  §1;  March  11  to  April  4,  §2.00  to  §1;  April  4  to 
May  1,  §2.55  to  §1;  May  L  to  Mav  14,  §2..50  to  §1;  May  14  to  June  30, 
$2.45  to  §1. 

To  meet  the  manifest  and  universally  acknowhxlged  hardships  of  an 


()46  KETOKT.S    OF    THK    CIVIL    (JOVERNMENT 

iuist:il)lo  currency,  disastrous  alike  to  all  l)usiness  interests  and  to  the 
oovernnicjit,  the  Congress  of  the  United  States  on  the  2d  day  of 
JNIaivh,  l!H»o,  passed  an  act  entitled  "An  act  to  eslahlish  a  standard 
of  value  an.d  to  pro\ide  for  a  coinage  system  in  the  Philippine  Islands," 
\vheri>l)v  a  system  of  a  new  currency  was  authorized  by  Cono-ress,  suh- 
stantially  in  accordance  with  the  recommendations  made  b}'  the  Com- 
mission in  each  of  its  three  reports.  The  beneticial  eti'ect  of  the  new 
leo-islation  b}'  ( 'ongress  was  innnediately  felt  in  business  circles.  While 
it  was  impossible  for  the  new  S3\stem  to  be  put  into  immediate  opera- 
tion, yet  the  fact  that  such  a  system  was  to  be  in  force  in  a  short  time 
restored  confidence  to  business  men  to  a  very  large  degree,  and  enabled 
the  government  to  make  its  forecast  of  income  and  expense  with  more 
certainty.  Tlie  beneticial  and  steadying  etlects  of  the  new  law  were 
felt  almost  from  the  moment  of  its  approval  by  the  President  of  the 
United  iStates.  An-angements  were  inuuediately  m:ide,  through  the 
Bureau  of  Insular  Afiairs  at  Washington,  for  the  purchase  of  silver 
and  other  metals  for  the  new  coinage  and  for  the  coinage  of  the  same 
at  the  mints  of  the  United  States,  and  for  the  preparation  of  the  silver 
certificates  authorized  by  the  act  of  Congress  referred  to,  through  the 
Bureau  of  Engraving  at  Washington.  The  designs  which  were  accepted 
for  the  new  coins  were  made  by  Senor  Melecio  Figueroa,  a  Filipino, 
and  are  ver}^  attractive.  The  purchases  of  silver  for  the  new  coinage 
undou))tedly  contributed  to  the  increase  in  the  market  value  of  silver, 
though  other  causes  operated  to  produce  that  result.  The  price  of 
silver  steadily  advanced  from  49.1  cents  per  ounce  in  New  York  on 
March  26,  1903,  when  the  insular  government  commenced  to  purchase, 
to  59.5  cents  per  ounce  on  or  about  November  1, 1903,  when  the  Govern- 
ment ceased  such  purchases,  it  being  then  considered  that  the  amount 
already  coined  and  to  be  coined  from  silver  and  other  metals  purchased 
down  to  that  date,  coupled  with  the  Spanish-Filipino  coins  and  United 
States  money  in  circulation  in  the  islands,  would  furnish  a  sufficient 
circulating  medium  for  all  the  demands  of  business  until  the  commerce 
of  the  islands  should  increase.  Down  to  November  1, 1903, 11,707,005 
ounces  of  silver  had  been  purchased  for  the  new  coinage,  at  a  cost  of 
^<), 317,460.63,  averaging  54.108  cents  per  ounce.  Metals  for  minor 
coins  had  been  purchased  at  a  cost  of  $86,042.01.  From  the  metals  so 
purchased  there  had  been  coined  and  shipped  to  Manila  down  to 
November  1,  1903,  14,500,000  Philippine  pesos,  half  pesos  to  the  value 
of  f*^l, 550,000,  20-centavo  pieces  to  the  value  of  1P1, 070,000,  10-cen- 
tavo  pieces  to  the  value  of  !P510,000,  5-centavo  pieces  to  the  value  of 
f*362,500,  1-centavo  pieces  to  the  value  of  ^79,200,  and  half-centavo 
pieces  to  the  value  of  ^54,550.  Of  the  currency  so  coined  f^l 4,543,650 
in  all,  including  subsidiary  and  luinor  coins,  had  ))een  received  in 
Mnnihi  up  to  and  including  October  31.  On  October  31  there  were 
likewise  in  transit  to  Manila,  ^1,560,000  in  pesos,  f*^l, 000,000  in  half 
pesos,  ^500,000  in  20  centavo  pieces,  1*60,000  in  10-centavo  pieces, 
=P70,()00  in  5-centavo  pieces,  f*=20,S00  hi  1-centavo  pieces,  ^16,800 
in  half-centavo  pieces,  making  an  aggregate  of  5*'3,227,600  in  transit. 
This  makes  a  total  of  1*17,771,250,  in  value  of  Philippine  currency, 
received  and  in  transit  on  October  31.  A  large  portion  of  the  minor 
coins  so  received  have  been  stored  in  the  insular  treasury,  but  deposits 
have  likevrise  been  made  in  the  local  banks  that  are  legal  government 
dei)ositories,  and  have  by  them  been  placed  in  circulation  to  a  greater 
or  less  extent.     The  insular  government  has  likewise,  since  the  1st  of 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  047 

August,  1903,  distributed  the  Philippine  pesos  in  pa3-ment  of  all  its 
civil  eniploj^ees,  and  in  payment  of  its  other  obligations  so  far  as 
practicable. 

Early  in  the  inauguration  of  the  new  s\'steni  a  question  of  great 
practical  importance  arose  as  to  what  should  be  done  with  the  Mexican 
and  Spanish-Filipino  coins  in  the  islands.  Strong  pressure  was  brought 
to  bear  by  the  local  banks  and  other  dealers  in  currency  to  induce  the 
Commission  to  enact  a  law  to  prohibit  the  further  importation  of  Mex- 
ican dollars  or  impose  a  h.eav_y  tax  upon  such  importation  and  agree- 
ing to  take  up  or  redeem  all  the  Mexican  curronc}'  in  the  islands  at  a 
fixed  valuation.  It  was  urged  that  the  Government,  under  those  cir- 
cumstances, might  well  redeem  all  the  existing  local  currency,  both 
Mexican  and  Spanish-Filipino,  at  a  uniform  ratio  of  1  peso  of  the 
new  currencj'  for  1  peso  of  the  old.  The  result  of  such  action  would 
necessarily  haA'e  been  to  have  given  an  immediate  fictitious  value  to  the 
local  currenc}'  then  in  the  islands  and  to  enable  the  banks  and  others  who 
might  get  possession  of  it  to  obtain  a  much  larger  price  than  its  true 
and  actual  value.  The  result  likewise  would  have  been  to  have  imposed 
upon  the  Government  a  great  expense  b}^  reason  of  paying  a  fictitious 
value  for  the  local  currency  in  the  islands,  probably  largely  in  excess 
of  the  whole  profits  that  may  be  made  from  seigniorage  on  the  new 
coins.  It  was  also  pi'obable  that  the  demonetization  of  the  Mexican 
coins  would  tend  of  itself  rapidly  to  expel  them  from  the  islands, 
and  that  the  danger  of  their  importation  was  not  then  inuuinent. 
After  careful  consideration  it  was  determined  that  the  ordinary 
lav>'S  of  suppl}'  and  demaiid  should  be  allowed  to  have  full  sway,  for 
the  present  at  least,  and  that  the  Mexican  dollars  should  be  allowed 
to  How  wherever  the  current  naturally  tended  to  take  them,  and 
that  the  Government  should'  not  redeem  them,  or  any  part  of  them, 
at  any  time  or  at  an}'  price.  The  result  so  far  has  demonstrated  the 
wisdom  of  this  conclusion.  For  some  time  before  the  inauguration 
of  the  new  system  the  fact  that  it  was  to  be  inaugurated  in  connection 
with  other  large  causes  had  tended  to  produce  a  constantly  accelerated 
flow  of  Mexican  dollars  out  of  the  islands.  From  January  1  down 
to  March  1,  1903,  and  before  the  act  of  Congress  had  passed,  the 
exportation  of  Mexican  dollars  amounted  to  approximately  1,600,000 
pesos,  and  the  importation  of  them  to  approximately  1,200,000 
pesos.  From  that  date  down  to  the  1st  da}'  of  August,  when  the  new 
currcnc}'  began  to  be  put  into  circulation,  the  exports  of  Mexican 
dollars  amounted  to  approximately  11,400,000  pesos  and  the  imports 
to  appi'oximately  251,000  pesos.  From  the  1st  day  of  August  to  the 
1st  day  of  November,  1903,  tlie  export  of  Mexican  dollars  amounted 
to  4,T()0,90O  pesos  and  th(>  imports  to  774,707  pesos,  inchiding  a  small 
amount  of  S})anish-Filipino  money.  The  importations  and  expor- 
tations  of  Mexican  dollars  from  the  1st  day  of  rJanuary  to  the  1st 
day  of  November,  1903,  aggregated  approximately  17,707,000  and 
2,22.5,000,  respectively,  leaving  a  net  excess  of  exports  over  imports 
amounting  to  approximately  IT),, 54 1,000,  which  is  approximately  the 
amount  of  the  new  coinage  that  has  been  introduced  into  the  islands. 
So  that  the  currency  available  in  the  islands  has  not  been  at  all  dimin- 
ished l)y  reason  of  the  exjjort  of  Mexican. 

It  is  imi)()ssible  to  estimate  with  any  exactness  the  numl)er  of  Mex- 
ican dollars  still  left  in  the  islands.  Air.  Jones,  manager  of  tlu>  Hong- 
kong and  Shanghai  r)anking  Cori)oration  at  Manila,  estimatcvs  that  not 


648  RKPORTS    iW    THK    CIVIL    (lOVKRNMENT 

more  thun  -1-,(HI0,0(H)  pesos  Mexican  are  still  rcuiaiiiiiio-  in  the  islands. 
Other  estimates  are  much  hii^-her.  The  amount  of  such  coins  in  all  the 
banks  and  in  the  insular  treasury  on  the  .1st  day  of  October,  li)();>,  was 
nuicli  less  than  1,000,000  pesos.  There  was  no  record  of  the  amount  of 
such  coins  in  the  islands  at  any  time.  Nearly  all  of  them  Avcre  intro- 
duced in  violation  of  Spauish  law,  and  therefore,  necessarily,  no  record 
was  made  thereof.  The  Mexican  dollars  were  the  coinage  of  a  foreign 
country,  in  part  unlawfully  introduced  into  the  islands,  and  the  insular 
goveriinuMit  manifestly  owes  no  duty  in  regard  to  them.  Other  con- 
siderations ])ertain  to  the  Spauish-Filii)ino  coins.  They  were  issued 
by  authority  of  tlie  government  that  controlled  the  ]*hilippine  Islands 
aiid  are  in  the  hands  of  the  residents  of  these  islands.  They  are  not 
used  in  Asiatic  countries,  so  that  it  is  imprac^ticahle  to  export  them  to 
those  countries,  as  is  done  with  the  Mexican  dollars.  It  was  con- 
sidered that  good  faith  and  fair  dealing  re(iuired  that  the  insular  gov- 
ernment shoidd  on  some  just  basis  redeem  the  Spanish-Filipino  c(_)ins, 
and  it  is  proposed  to  take  such  action  at  an  early  date  upon  a  basis  to 
be  hereafter  determined.  This  basis,  however,  will  not  be  in  excess 
of  tlie  conunercial  value  of  Mexican  dollars,  and  after  a  reasonable 
time  will  probably  be  the  l)ullion  value  of  the  coins.  The  Spanish- 
Filipino  coins  that  are  in  the  insular  treasury  are  already  being 
transported  to  San  Francisco  to  l)e  coined  into  new  Philippine  coins 
in  the  mint  there  located.  The  official  ratio  between  United  States 
money  and  local  coins,  both  Mexican  and  Spanish-Filipino,  for  pay- 
ment of  public  dues  has  been  maintained  at  |1  of  Fnited  States 
money  for  $2.80  of  the  local  coins  since  August  1  to  thelst  day  of 
November,  1903.  This  ratio  was  an  artilicial  one,  and  gives  to  the 
local  currency  materially  less  than  its  commercial  value.  The  result 
has  l)een  that  very  little  of  it  has  l)een  paid  into  the  treasury  for 
payment  of  public  dues  during  that  period.  On  the  2od  day  of 
October,  1903,  the  civil  governor  issued  a  proclamation,  in  accordance 
with  the  act  of  Congress  of  March  2,  1903,  ]iroviding  that  Mexican  dol- 
lars would  not  be  received  for  public  dues  aft(>r  the  1st  day  of  January, 
1901.  After  that  date  another  date  will  doubtless  be  fixed  after  which 
the  Spanish-Filipino  coins  will  not  be  received  in  payment  of  public 
dues,  but  l)etween  the  dates  of  January  1,  1901,  and  the  date  when 
Spanish-Filipino  coins  become  demonetized,  the  ratio  between  United 
States  money  and  the  Spanish-Filipino  coins  for  payment  of  public 
dues  ought  to  be  a  fair  commercial  ratio,  so  that  such  coins  will  come 
into  the  treasury  in  payment  of  public  dues,  and  they  ought,  upon 
coming  in,  to  be  there  retained  and  shipped  from  time  to  time  to  San 
Fiuncisco,  to  be  recoined  into  the  new  Philippine  coins.  During  the 
same  period  provision  ought  also  to  l)e  made  for  their  redemption  by 
the  treasurer  at  the  official  ratio,  irrespective  of  whether  they  arc  or  are 
not  tendered  in  payment  of  public  dues.  It  will  reipiire  considerable 
time  to  get  in  the  Spanish-Filipino  coins,  the  amount  of  which  is  esti- 
mated at  between  11,000,000  and  1.5,000,000  pesos,  to  expel  the  Mex- 
ican pesos,  and  to  introduce  the  new  Philippine  coins  throughout  the 
remote  provinces.  The  number  of  Philip})ine  pesos,  subsidiary  and 
minor  coins  deposited  in  the  banks  and  by  them  put  into  circulation, 
and  put  into  circulation  by  payment  directly  from  the  treasury  for 
salaries,  wages,  and  other  obligations  of  the  government,  is  as  follows, 
prior  to  the  1st  da}^  of  Novend>er,  1903: 

On    October   31    there    were   held   in    the    vaults  of   the   treasury 
^9,517,001.22,  and  m  circulation  i*=.5, 026,615. 78,  of  which  last  amount 


OF    THE    PHILIPI'INE    ISLANDS,    IDOO-l'JtW.  649 

1P3, 24:6,473.50  consi.'sted  of  money  held  in  the  vaults  of  the  four  princi- 
pal hank.s  of  Manila.  The  aggreg-ate  of  these  two  items,  "Fi),ol7.()i)4.22 
and  P5,U26,645.7S,  is  ^14,543,650,  the  total  numl)ei-  at  that  time 
received  in  the  islands. 

In  aoeordance  with  the  provisions  of  said  act  of  Congress  steps 
Nvere  inmiediatelv  taken  to  secure  tlie  printing  of  the  ne^\"sihor  cer- 
tirtcates,  such  certiHcates,  lacking  only  the  seal  and  numeral,  having 
been  received  in  the  islands  up  to  and  including  October  30  to  the 
amount  of  f*^5,<)00,()00.  The  work  of  printing  the  numerals  and  seals 
upon  them  was  immediately  begun  under  the  direction  of  the  treasurer, 
and  their  disbursement,  in  exchange  for  silver  pesos  deposited  in  the 
treasury,  conunenced  on  the  28th  day  of  Octol)er,  1903.  From  that 
date  and  during  the  iirst  week  in  November  about  1*400,000  of  them 
were  placed  in  circulation.  They  form  an  exceedingly  convenient 
means  of  exchange  and  relieve  the  l)urdensomeness  of  making-  payments 
in  the  heavy  silver  coin,  either  old  or  new,  and  come  as  a  great  relief 
for  business  men  and  all  others  who  have  occasion  to  receive  or  pay 
out  money. 

^  The  act  of  Congress  above  referred  to,  and  likewise  the  act  of 
Congiess  approved  July  1,  1902,  entitled  "An  act  temporarily  to 
provide  for  tlie  administration  of  the  affairs  of  civil  government  in 
the  Philippine  Islands,  and  for  other  purposes,"  provided  in  general 
terms  the  safeguards  that  might  1)e  employed  to  make  certain  the 
maintenance  of  the  parity  of  the  Philippine"^  peso  witli  gold.  To  put 
those  provisions  of  the  act  of  Congress  into  effect,  and  to  supply  such 
other  means  as  Avere  deemed  necessary  for  maintaining-  the  parity 
l)etween  the  new  currency  and  gold,  and  to  supply  the  necessary 
machinery  for  issuing-  and  safeguarding  the.  issuing  of  silver  certifi- 
cates, the  Commission  on  the  loth  day  of  Octol)er,  1903,  passed  act 
No.  938,  entitled  "An  act  constituting  a  gold-standard  fund  in  the 
insular  treasury  to  he  used  for  the  purpose  of  maintaining  the  parity 
of  the  silver  Philippine  peso  with  the  gold-standard  peso,  and  organ- 
izing- a  division  of  the  currency  in  the  bureau  of  the  insular  treasury 
through  which  sucii  fund  shall  be  maintained,  expenditures  made 
therefrom  and  accretions  made  thereto,  and  providing  regulations  for 
the  excliange  of  currencies  and  for  the  issue  and  redemption  of  silver 
certiticato,"  which  for  brevity  in  this  report  is  termed  the  "gold 
standard  act." 

That  act  provides  for  the  creation  of  a  "gold-standard  fund,"  to  be 
used  for  the  purpose  of  maintaining  the  parity  of  the  silver  Philippine 
peso  with  the  gold -standard  peso  provided  in  the  act  of  Cong-ress  ap- 
proved March  2,  1903.  It  states  that  all  funds  in  the  insular  treasury 
which  are  the  proceeds  of  the  certificates  of  indebtedness  issued  under 
said  act  of  Congress,  all  profits  of  seigniorage  made  in  the  purchase 
of  bullion  and  coinage  tlu^rcfi-om,  all  profits  fi'om  the  sale  of  exchange; 
by  the  insular  govermiient  bctwciMi  the  Phili{)pine  Islands  and  the 
United  States,  and  all  oth(  r  leceipts  in  the  insular  treasury  accru- 
ing- from  the  exei-cise  of  its  functions  of  furnishing-  a  convenient  cur- 
rency for  the  islands  shall  constitute  a  separate  and  trust  fund.  It 
can  not  be  used  to  pay  any  of  the  expenses  vf  the  insular  government 
except  those  comiected  with  the  purchase  of'  bullion  and  the  coinage 
of  the  same,  those  which  are  incident  to  the  transportation  of  such 
money  to  the  Philippine  Islands  from  the  place  of  coinage,  i)utting 
of  the  mone}^  into  circulation,  including  the  pnjparation  and  issue  of 
the  silver  certificates,  and  the  carrying-  out  of  such  financial  transac- 


(350  REPORTS    OF    TllK    (MVl).    (lOVKKNMKNT 

(ions  as  mav  Ix'  uuthovizcd  hy  l:i\v  to  nuiintain  the  circulation  of  the 
new  cunvncv  aucl  for  the  maintenance  of  the  parity  of  value  between 
the  silver  Philippine  peso  and  the  suhsidiary  and  minor  coins  with 
o-old,  with  the  proviso  that  there  may  he  withdrawn  from  the  .i>old- 
standard  fund  such  amount  as  the  rhilii)j)ine  Government  may  deem 
proper  to  pay  the  principal  and  interest  of  the  certilicates,  or  any 
part  of  its  indebtedness  incurred  nnder  section  Oof  the  act  of  Con- 
g-ress  of  March  2, 1903.  There  is  created  in  the  bureau  of  the  insular 
treasury  a  division  of  currency,  the  chief  of  the  division  to  be 
ap])ointed  by  the  civil  governor',  with  the  advice  and  consent  of  the 
Conunission,  at  an  annual  salary  of  1*0,000.  It  is  made  the  duty 
of  the  chief  of  the  division  of  currency  to  examine  the  books  of  the 
treasurer  and  auditor,  to  make  report  of  the  funds  in  the  treasury 
which  are  to  constitlite  the  gold-standard  fund  and  to  be  segregated  as 
such,  and  to  make  his  report  thereof  to  the  treasurer.  If  the  treas- 
urer and  auditor  concur  in  the  recommendations  so  made,  a  segrega- 
tion sliall  be  made  in  accordance  with  that  report  on  the  books  of  the 
treasurer  and  auditor.  In  case  of  any  ditierencc  of  opinion  l)et\yeen 
the  chief  of  the  division  of  currency,  the  treasurer,  and  the  auditor, 
the  method  of  segregation  is  to  be  finally  determined  by  the  secretary 
of  linance  and  justice.  After  the  segregation  has  been  effected,  all 
receipts  for  monevs  coming  into  the  treasury  that  ought  to  be  deposited 
to  the  gold-standard  fund  "shall  be  submitted  to  the  chief  of  the  divi- 
sion of' currency  for  his  initialing  and  proper  notation  of  the  same. 
When  any  money  is  to  be  withdrawn  from  the  gold-standard  fund,  or 
transferred  from  the  treasury  in  Manila  to  a  depositary  elsewhere,  or 
vice  versa,  the  warrant  or  draft  or  telegraphic  transfer  of  the  same, 
must  state  specifically  that  it  is  from  the  gold-standard  fund,  and  shall 
be  initialed  and  noted  by  the  chief  of  tiic  division  of  currency.  No 
transaction  in  the  treasury  with  reference  to  the  coinage  of  money, 
the  circulation,  the  maintenance  and  preservation  of  the  gold-standard 
fimd,  the  maintenance  of  the  parity,  or  the  issue  and  retirement  of 
silver  certilicates  shall  take  place  until  first  sul)mitted  to  the  chief  of 
the  division  of  currency.  It  is  made  his  duty  to  keep  a  set  of  books 
dealing  solely  with  the  financial  operations  of  the  government  in 
coinage  and  currency  matters,  and  in  the  administration  of  the  gold- 
standaid  fund,  and  to  make  a  monthly  statement  of  the  same  to  the 
insular  tre:isurer  and  to  the  secretary  of  linance  and  justice.  But  the 
actual  custody  and  control  of  all  insular  funds,  including  the  gold- 
standard  fund,  remains  in  the  insular  treasurer  as  heretofore,  and  he 
is  responsible  for  the  same,  the  duties  of  the  chief  of  the  division  of 
currencv  to  be  performed  under  his  supervision. 

Foi-  the  purpose  of  maintaining  the  parity  of  the  Philippine  silver 
peso  with  the  Philippine  gold  peso,  which  latter  is  the  theoretical 
standard,  under  the  act  ofCongress  referred  to,  and  of  keeping  the 
currency  equal  in  volume  only  to  the  demands  of  trade,  five  special 
provisions  are  made.     The  treasurer  is  authorized — 

First.  To  exchange  at  the  insular  treasury  for  Philippine  currency 
offered  in  sums  of  not  less  than  1*10,000,  or  United  States  money 
offered  in  sums  of  not  less  than  $.5,000,  drafts  on  the  gold-standard  fund 
deposited  in  the  United  States  or  elsewhere,  charging  a  premium  of 
three-fourths  of  1  per  cent  for  demand  drafts,  and  li  per  cent  for 
tclcLn-aphic  transfers,  and  to  direct  the  depositaries  of  the  funds  of  the 
Philippine  government  in  the  United  States  to  sell  upon  the  same 


OF    THE    PHILIPPINE    ISLANDS,    1900-190:].  651 

term.s  and  in  like  amount  exchange  against  the  gold-standard  fund  in 
the  Philippine  Islands.  The  piemiuni  to  l)e  charged  for  drafts  and 
telegraphic  transfers  nia,y  l>e  temporarily  increased  or  decreased  by 
orders  of  the  secretary  ojf  finance  and  justice  should  the  conditions  at 
any  time  existing,  in  his  judgment,  require  such  action. 

Second.  To  exchange  at  par,  on  the  approval  of  the  secretary  of 
tinance  and  justice.  United  States  paper  currency  of  all  kinds  for 
Philippine  currency,  and  the  reverse. 

Third^  On  like  approval,  to  exchange  for  Philippine  currency 
United  States  gold  coin  or  gold  bars  in  sums  of  not  less  than  5*=10,000 
or  $5,000,  charging  for  the  same  a  premium  sufficient  to  cover  the 
expenses  of  transporting  United  States  gold  coin  from  New  York  to 
Manila,  the  amount  of  such  prcnnium  to  be  determined  by  the  secre- 
tary of  linance  and  justice. 

Fourth.  To  withdraw  fi'om  circulation  until  paid  out  in  response  to 
demands  made  upon  it,  in  accordance  with  the  provisions  of  the  ;ict, 
Philippine  currency  exchangi^d  and  deposited  in  the  treasury. 

Fifth.  To  withdraw  from  circulation  United  States  paper  currency, 
and  gold  coin  and  gold  bai's  received  ])y  the  insular  treasury  in 
exchange  for  Philippine  currency,  until  the  same  shall  be  called  out  in 
response  to  the  presentation  of  Philippine  currency,  or  until  an 
insufficiency  of  Philippine  currency  shall  make  necessary  an  increased 
coinage,  in  which  event,  for  the  purpose  of  providing  such  coinage, 
the  coin  so  obtained  shall  become  part  of  the  gold- standard  fund. 

The  insular  treasurer  and  the  treasurers  of  the  several  provinces  are 
authorized  to  exchange  Philippine  pesos  on  demand  for  the  subsidiary 
and  minor  Philippine  coins,  and  the  reverse,  in  sums  of  ^10  or  any 
multiple  thereof. 

The  issue  and  redemption  of  silver  certilicates  is  to  be  conducted 
under  the  immediate  supervision  of  the  chief  of  the  division  of  the  cur- 
rency, and  his  books  are  to  contain  detailed  accounts  of  the  issue  and 
redemption  thereof.  The  treasurer  is  authorized  to  issue  silver  cer- 
tificates, upon  receiving  deposits  of  the  standard  Philippine  pesos,  in 
accordance  with  regulations  fully  provided  in  said  act,  which  are 
designed  to  secure  safety  in  the  preparation  of  the  plates,  engraving, 
printing,  and  circulation  thereof.  The  more  important  safeguards  in 
this  respect  aie  that  wiicn  the  silver  certificates  have  been  entirely 
completed,  cut,  counted,  and  placed  in  proper  bundles,  they  shall  lie 
deposited  in  the  reserve  vault,  there  to  remain  until  required  for  cir- 
culation, and  not  to  be  considered  while  so  remaining  in  the  vault  as 
available  cash  for  the  government,  and  shall  not  appear  as  such  on  the 
books  of  the  treasury,  although  the  treasurer  shall  be  responsible  for 
the  same  as  money;  that  from  time  to  time  the  treasurer  shall  with- 
draw such  amount  of  silver  certificates  from  the  reserve  vault  as  njay 
be  required  to  meet  the  demands  for  their  purchase  in  accordance 
with  the  provisions  of  section  <S  of  the  act  of  Congress  of  March  2, 
1903.  All  certificates  so  withdi'awn  from  the  reserve  vault  are  to  ))e 
thereafter  treated  as  cash  availal)le  for  the  Government,  and  the  pesos 
received  in  exchange;  for  the  silver  certificates  sold  are  to  l)c  deposited 
in  the  reserve  vault  and  held  for  tlie  payment  of  the  certificates  on 
demand,  and  shall  constitute  a  trust  fund  to  be  used  for  no  other  pur- 
pose. Certificates  mutilated  or  otherwise  unfit  for  circulation,  when 
paid  into  the  insular  treasury,  shall  not  be  reissued,  but  i-etained  for 
future  destruction,  with  safeguards  in  the  act  fully  provided. 


i'')-:  KKTORTt^    OK    THE    CIVIL    GOVERNMENT 

The  theory  of  the  act  of  C^ong-rcss  referred  to  and  of  the  ^old- 
standtird  act  passed  by  the  Coimiiisslon  is  substantially  that  a  gold- 
standard  circulating  medium  may  be  maintained  at  a  parity  with  gold 
williout  any  large  use  of  a  gold  currency  by  the  aid  of  the  means  pro- 
vided for  maintaining  the  i)arity  between  the  two  currencies.  The 
essential  elements  of  the  system  are  l)ased  upon  th(>,  maintenance  of  a 
reasonable  gold-standard  fund,  the  rigid  restriction  of  the  amount  of 
new  coinage  so  as  to  meet  only  tiie  demands  of  couHnei'ce,  the  retire- 
nuMit  of  a  sulHcient  amount  of  such  coinage  whenever  it  shall  l)ecome 
ajjparent  that  there  is  more  in  circulation  than  the  demands  of  com- 
merce require,  the  issuance  of  more  of  the  new  currency  whenever  it 
becomes  apparent  that  there  is  a  shortage  of  .such  currency  in  circula- 
tion, and  the  furnishing  of  reasonable  facilities  for  the  conversion  of 
gold  coin  or  other  money  of  the  United  States  into  Philippine  cur- 
rency, or  the  reverse,  as  the  demands  of  commerce  may  require.  The 
theory  and  sj'stem  are  su'hstantiall}^  the  same  as  those  adopted  l)y  the 
British  Go^■erlallent  to  maintain  the  parity  of  the  rupee  in  India;  by 
the  Japanese  Government  to  maintain  the  parity  of  the  3^en  in  ,Iapan, 
and  by  the  Dutch  Government  to  maintain  the  parity  between  the 
silver  coins  in  circulation  and  the  gold  standard  in  Java.  The  new 
currency  system  about  to  be  inaugurated  in  the  Straits  Settlements  is 
based  upon  the  same  theory.  An  attempt  to  introduce  the  same  sys- 
tem upon  a  much  larger  scale,  and  particularly  with  reference  to  a 
silver  coinage,  but  a  gold  standard,  for  Mexico  and  a  coinage  that 
shall  circulate  throughout  the  Empire  of  China  has  been  under  consid- 
eration during  the  past  year  largely  through  the  instrumentality  of 
commissions  aijpointed  by  the  United  States  Government  and  by  the 
Republic  of  Mexico.  The  Philippine  government  is  so  largely  inter- 
ested in  this  question,  in  its  larger  sense,  particularly  as  it  relates  to 
the  neighboring  country  of  China,  that  $10,000  in  mone}^  of  the  United 
States  has  been  appropriated  from  the  insular  treasury  toward  the 
payment  of  the  expenses  of  that  Commission  in  its  work  in  China. 

Among  other  things  provided  by  the  act  of  Congress  approved 
March  2,  1903,  for  maintaining  the  parity  of  the  value  of  the  silver 
Philippine  peso  and  the  gold  Philippine  peso  was  one  authorizing 
the  issue  of  temporary  certilicates  of  indebtedness  bearing  interest  at 
a  rate  not  exceeding  4  per  cent  annually,  payable  at  periods  of  three 
months  or  more,  but  not  later  than  one  year  from  the  date  of  issue,  in 
denominations  of  |25  or  some  multiple  thereof,  redeemable  in  gold 
coin  or  any  lawful  money  of  the  United  States,  according  to  the  terras 
of  issue  prescribed  l)y  the  insular  government,  with  a  provision  that 
the  amount  of  such  certilicates  outstanding  at  one  time  shall  not  exceed 
$10,000,000,  money  of  the  United  States,  and  that  such  certificates 
shall  be  exempt  from  the  payment  of  all  taxes  or  duties  of  the  govern- 
ment of  the  Philippine  Islands,  or  any  local  authority  therein,  or  the 
Government  of  the  United  States,  as  Avell  as  taxation  in  any  form  by 
or  under  any  State,  municipal,  or  local  authority  in  the  United  States 
or  the  Philippine  Islands,  the  proceeds  of  such  certificates  to  be  used 
exclusively  for  tiie  maintenance  of  the  parity,  and  for  no  other  pur- 
pose, except  that  a  sum  not  exceeding  $8,000,000  at  any  one  time  may 
be  used  as  a  continuing  credit  for  the  purchase  of  silver  bullion  in 
execution  of  the  provisions  of  the  act.  In  pursuance  of  this  authority 
the  insular  government  on  the  23d  day  of  March,  VMS,  authorized  the 
sale  of  $3,000,000  of  such  certificates,  in  one  year,  payable  in  gold 


OF    THE    PHILIPPINP:    ISLANDS,    VMO-IWS.  653 

coin  or  money  of  the  United  States.  These  certificates  were  sold 
through  the  Bureau  of  Insular  Affairs  at  Washington,  at  a  premium 
of  2.513  per  cent.  The  rate  of  interest  being  4  per  cent,  and  the  time 
which  the}^  were  to  run  being  one  year,  after  deducting  the  premium, 
the  net  interest  paid  would  be  1.487  per  cent.  The  money  realized  in 
this  transaction  was  deposited  to  the  credit  of  the  gold-standard  fund, 
with  the  Guarant}^  Trust  Company  in  New  York,  which  paid  at  the 
rate  of  3i  per  cent  per  annum  for  the  use  of  the  money.  It  therefore 
resulted,  inasnnich  as  the  money  remained  for  a  considerable  period  on 
deposit  with  the  Guaranty  Trust  Company,  that  the  interest  received 
from  that  deposit  more  tlian  paid  the  interest  above  stated  that  the 
Government  must  pay  upon  the  certificates,  so  that  the  transaction 
cost  the  Government  less  than  nothing,  and  was  an  actual  source  of 
profit. 

On  the  25th  day  of  August,  1903,  $3,000,000  more  of  the  certificates, 
to  run  for  the  same  period  and  to  bear  the  same  rate  of  interest,  were 
sold  at  a  premium  of  2.24  per  cent,  and  the  proceeds  were  deposited 
with  the  Guaranty  Trust  Company  at  New  York.  The  last  issue  of 
bonds  sold  at  a  slightly  lower  price  than  the  first,  because  of  a  greater 
stringency  in  the  money  market  of  New  York  at  the  time  of  the  second 
sale.  The  special  reasons  for  the  exceedingly  favorable  terms  upon 
which  the  certificates  were  sold  were,  first,  the  entire  safety  of  the  cer- 
tificates; second,  the  fact  that  they  were  made  exempt  from  taxation; 
and,  third,  that  the  Secretar^^  of  the  Treasury  of  the  United  States 
authorized  their  deposit  by  national  banks  as  security  for  deposits  of 
United  States  funds  held  by  the  banks.  The  last  circumstance  gave  to 
them  an  especial  value. 

These  two  transactions  probably  are  unique  in  the  history  of  Gov- 
ernment loans,  in  that  the  Government  has  actually  made  a  profit  out 
of  its  debts. 

The  facts  in  regard  to  the  passage  of  the  gold-standard  act,  and 
the  introduction  of  the  new  currenc}'  have  been  brought  down  sub- 
stantially to  November  1,  1903,  so  that  as  much  light  as  practicable 
may  be  thrown  upon  the  workings  of  the  new  currency  and  upon  the 
progress  that  has  been  made  upon  its  inauguration. 

Mr.  E.  W.  Kenmierer,  who  was  an  instructor  of  economics  in  Purdue 
Univcrsit}^  at  Lafayette,  Ind.,  and  had  made  a  special  study  of  finance 
and  currenc}',  has  been  bi'ought  to  the  islands  to  aid  in  the  establish- 
ment and  maintenance  of  this  new  system,  and  was  duly  appointed  to, 
and  now  occupies,  the  position  of  chief  of  the  division  of  currency 
created  by  the  gold-standard  act. 

The  opinion  is  confidently  entertained  by  this  office  that  no  single 
step  has  })('en  taken  since  American  occupancy  that  will  ultimately 
roclound  more  to  the  business  interests  and  pi-osperity  of  the  islands, 
of  its  people  and  business  men,  than  the  successful  inauguration  of  the 
new  system  of  stable  currency. 

It  is  not  to  l>e  anticipated  that  the  new  currency  or  United  States 
currency  can  immediately  suj)plant  the  use  of  the  okl.  The  moment 
that  silver  conuncnces  again  to  fall  in  value,  the  inti'insic  value  of  the 
existing  local  coins  diminishes  and  the  more  desirable  they  become  for 
the  use  of  the  exporter  and  tlu;  large  purchaser  who  employs  native 
labor  or  buys  native  conunodities.  Selling  his  goods  in  the  foreign 
markets  of  the  world  upon  practically  a  gold  l)asis,  the  gold  which  he 
receives  will  enable  him  to  purchase  more  of  the  depreciated  coin 

23181— U-l 42 


654  REPOKT8    OF    THE    CIVIL    (K)VKKNMENT 

with  Nvhirli  to  pay  his  eni[)l()yo('s  or  to  purchuso  coniiuoditios  in  the 
interior.  Thi*  liahitual  price  oi"  coninuHlities  and  of  labor  beinj;"  tixed 
in  local  currency,  is  not  niateiitilly  all'ectvd  by  the  change  in  the  world 
value  ot"  t  hat  local  eurnincy.  So  t  hat  it  will  ahvays  l)ead\  antgaeousto  the 
cdass  of  ])urchasers  and  ex])ortei"s  nientioned  to  make  use  ol"  the  cheaper 
currency  in  payment  instead  ot"  the  better  one,  and  it  is  difficult  to  pro- 
vide, except  by  extremely  drastic  lei^islation,  measures  that  will  i)revent 
such  use,  to  a  certain  extent,  of  the  existing  coins.  It  is  not  certain 
that  it  is  in  the  interest  of  the  commerce  of  the  country  that  such 
steps  should  be  taken  now,  it'  at  any  time.  The  new  currency  upon  a 
fixed  and  stable  l)asis  will  have  all  the  (pialities  of  a  legal  t(>iider,  will 
be  receivable  for  public  dues,  will  be  the  official  mone}'  of  thecounti'y, 
can  be  converted  at  the  Treasur^^  at  a  moment's  notice  into  gold 
money  of  the  world,  and  possesses  such  superior  elements  and  advan- 
tages that  all  connnercial  transactions  can  be  based  upon  it  with  safety 
and  certainty,  and  Government  forecasts  can  be  made  with  all  the 
advantages  of  an  absolute  gold  currenc}'.  The  great  economic  law 
that  where  a  good  currency  and  a  debased  one  exist  side  by  side,  both 
having  debt-pajnng  capacity,  the  bad  currency  drives  out  the  good, 
has  little  application  to  the  situation  here.  Such  local  currency  as  may 
remain  in  use  in  the  islands  will  have  no  debt-paying  capacit}',  except 
in  fulfillment  of  special  contracts  payal)le  in  that  commodity  only,  and 
will  not  be  money  in  anj^  technical  sense  of  that  tci'm.  It  will  be  a  com- 
modity pure  and  simple.  It  will  not  be  a  case  of  poor  money  driving  out 
good  money,  because  the  only  money  will  l)e  good  ihoney.  Nor  is  it 
feasible  for  the  new  coinage  to  be  driven  out  to  other  countries  by  the 
local  currency,  because  the  Philippine  currency  is  not  a  coin  in  circu- 
lation in  other  countries,  and  Avill  there  be  available  only  for  reexpor- 
tation to  the  Philippine  Islands,  or  for  bullion,  and  for  bullion  purposes 
it  will  not  be  worth  its  current  value  in  the  Philippine  Islands,  unless 
the  market  price  of  silver  should  increase  to  a  very  marked  degree  and 
for  a  much  larger  percentage  than  appeal's  within  the  range  of  proba- 
bility. On  the  whole,  it  seems  now  almost  certain  that  the  new  syjstem, 
with  a  uniform  gold  standard,  will  l)e  the  actual  basis  throughout  the 
Philippine  Islands  and  in  general  use  therein  within  a  comparatively 
few  mouths. 

It  ought  to  be  remarked  that  since  the  Philippine  government  has 
announced  that  it  is  out  of  the  market  for  the  purchase  of  silver  the 
market  price  of  silver  has  gradually  fallen,  owing  in  part  to  that 
announcement.  At  the  same  time  the  outflow  of  Mexican  dollars  from 
the  islands  has  substantially  ceased,  because  it  is  no  longer  profitable 
for  purposes  of  exportation.  It  is  not  impossible  that  some  ma}^  be 
imported  in  the  near  future. 

BANKS   AND   BANKING. 

Since  the  last  report  from  this  office  no  new  banks  have  been  estab- 
lished in  the  islands  by  any  governmental  authority,  nor  have  new 
offices  been  opened  by  American  or  other  foreign  l)anking  institutions. 
The  funds  belonging  to  the  insular  government  have  been  more  largely 
retained  in  the  treasury  during  the  fiscal  year  1903  than  before  that 
time,  but  the  funds  not  so  retained  in  the  treasury  vaults  have  been 
distributed  between  the  Chartered  Bank  of  India,  Australia  and 
China,  the  Hongkong  and  Shanghai  Banking  Corporation,  the  Inter- 
national Banking  Corporation  of  Connecticut,  and  the  Guaranty  Trust 
Company  of  New  York,  at  New   York  .and   Manila,  all   authorized 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903. 


655 


depositaries  for  funds  of  the  United  States  Government  and  for  the 
g-overnment  of  the  Philippine  Islands.  At  the  close  of  the  fiscal  3-ear 
1903  funds  belongiug  to  the  insular  treasur}"  were  distributed  as  fol- 
lows: 


Philippine 
currency. 

U.  S.  currency. 

Local 
currency. 

In  the  insular  treasun' 

84,141,304.02 
363,523.11 
745,690.92 
735,840.60 

1,586,873.49 
082,528.99 

Chartered  Bank  of  Inilia,  Australia  and  i^hina 

8492,4.S9.21 
476,839.77 
465,555.24 

813S,  001. 88 
167  737  09 

Hongkong  and  Shanghai  Banking  Corporation... 

International  Banking  Corporation 

Guaranty  Trust  Co.: 

At  New  York 

At  Manila 

499, 7S7. 40 

213,971.93 

The  so-called  "American  Bank"  was  organized  in  the  cit}^  of  Manila 
during  the  fiscal  year  ll>02,  with  a  paid-up  capital  of  $25,000,  which 
has  not  been  increased  up  to  the  present  time.  That  corporation  was 
formed  as  a  corporation  by  Aoluntaiy  association  under  the  Spanish 
laws,  no  new  general  corporation  laws  having  been  passed  by  the 
Philippine  Commission,  and  no  charter  having  been  granted  to  the 
American  Bank  by  the  Commission.  Its  status  as  a  legal  corporation 
is  doubtful,  in  view  of  the  fact  that  the  granting  of  franchises  is 
deemed  to  be  an  act  of  the  sovereign  power,  and  that  the  present  sov- 
ereign power  has  never  sanctioned  or  authorized  the  granting  of  anj^^ 
franchise  to  the  American  Bank,  or  to  any  other  corporation  formed 
after  the  American  occupancy  by  virtue  of  existing  Spanish  laws. 

In  the  former  report  from  this  office  a  recommendation  was  made 
that  Congress  be  urged  to  pro\'ide  for  a  banking  S3^stem  in  the  Philip- 
pine Islands,  or  specifically  to  authorize  the  Commission  to  establish 
such  S3'stem,  with  the  right  to  authorize  the  issue  of  bank  notes.  The 
Congress  has  legislated  upon  the  subject  of  currency  in  the  Philippine 
Islands  without  providing  for  the  creation  of  banks  of  issue.  It  is 
doubtful  whether  the  recommendation  made  in  the  former  report  ought 
now  to  be  renewed.  Since  the  date  of  that  report  provision  has  been 
made  for  the  institution  of  a  wholly  new  currency  system  for  the 
islands,  including  the  issue  of  silver  certificates  by  the  treasurer  in 
exchange  for  Philippine  pesos  deposited  in  the  treasuiy  for  their 
redemption.  While  the  new  silver  certificates  are  not  legal  tender  in 
the  payment  of  ordinary  obligations,  though  they  are  receivable  for 
pul)ric  dues,  and  are  not  fjank  notes,  nor  money  in  the  ordinary  sense 
of  those  terms,  yet  thc\'  form  a  convenient  means  of  exchange  in  ordi- 
naiT  commercial  transactions,  and  perform  to  some  degree  the  func- 
tions of  ordinal'}'  paper  currency.  It  is  probably  advisable  that  the 
workings  of  th<^  new  system  should  be  observed  for  a  time  before  ask- 
ing for  further  legislation  in  that  respect.  It  is  possible  that  the  new 
silver  certificates,  coupled  with  a  large  amount  of  United  States  paper 
currenc}'  which  is  now  in  circulation  in  the  islands  and  is  legal  tender, 
together  with  the  amount  of  bank  notes  that  are  in  circulation  issued 
by  the  Spanish-Filipino  bank,  will  furnish  all  the  facilities  for  the 
present  that  are  needed.  It  is,  therefore,  recommended  that  Congress 
be  not  asked  to  legislate  at  its  coming  session  in  regard  to  the  estab- 
lishment of  banks  of  issue. 

THE   TUKASUIiY. 

The  insular  treasury  has  continued  during  tlu;  past  year  under  the 
control  of  the  same  faithful  and  efficient  treasurer  who  has  been  at  its 


(>r)()  KKPOKTS    OK    TIIK    CIVIL    (iOVEKNMENT 

head  since  tlie  or^aiiiztitiou  of  eivil  t»c)veniiiieiit.  All  his  accounts,  as 
well  as  the  accounts  of  practically  all  receiving-  and  disbursing  oHicers 
in  the  islands,  have  been  thoroughly  audited  in  the  olKce  of  the  auditor, 
through  whose  zeal,  tirmness,  accuracy,  and  ability  enormous  sums 
have  been  saved  to  the  government,  while,  at  the  same  time,  it  is 
believed  that  all  just  claims  have  received  fair  and  reasonable  recog- 
nition. Want  of  cUiciency  in  the  office  of  the  auditor  would  have 
resulted  in  hopeless  confusion  in  view  of  the  large  number  of  inexpe- 
rienced receiving  and  disbursing  officers  necessarily  employed,  the 
uncertainties  of  ]n(>ans  of  commuiucation  by  which  funds  are  received 
or  transmitted,  and  the  dithculties  arising  from  a  fluctuating  currency 
used  side  by  side  with  a  stable  one.  Happily  the  difficulties  arising 
from  the  cause  last  named  wnll  hereafter  be  largely  eliminated,  and  the 
other  two  causes  are  being  more  and  more  effectively  dealt  with  as 
time  goes  on. 

The  several  amounts  in  the  treasury  at  the  end  of  the  fiscal  years 
1901,  1902,  and  1903  were  as  follows,  stated  in  money  of  the  United 
States  at  the  ratios  existing  on  each  of  the  several  dates:  On  June  30, 
1901,  $6,222,912.78;  on  June  30,  1902,  $5,995,006.49^;  on  June  30, 
1903,  $10,633,693.13. 

The  several  sums  available  for  appropriations  at  the  close  of  the 
fiscal  years  referred  to  are  as  follows,  local  currency  being  reduced  to 
United  States  money  on  the  bases  above  stated:  June  30,  1901, 
$3,919,120;  June  30, 1902,  $3,999,126.17;  June  30, 1903,  $6,819,321.28. 

It  will  be  observed  that  both  the  amount  in  the  treasury  and  the 
amount  available  for  appropriations  were  materially  larger  at  the 
close  of  the  tiscal  year  1903  than  at  the  close  of  either  of  the  prior  fis- 
cal years  referred  to.  But  such  a  statement  without  explanation 
would  be  misleading.  During  the  tiscal  3^ear  1903  more  or  less  of  the 
financial  operations  above  referred  to  in  this  report  for  the  establish- 
ment of  the  new  coinage  S3\stem  were  undertaken,  and  money  was  bor- 
rowed upon  the  certificates  in  accordance  with  the  provisions  of  the  act 
of  Congress  in  that  behalf,  and  the  proceeds  of  the  sale  of  the  first  set 
of  certificates  went  to  swell  both  the  amount  in  the  treasury  and  the 
amount  therein  availal^le  for  appropriations.  In  order  to  comprehend 
the  true  financial  condition  of  the  government  at  the  close  of  the  fiscal 
3'ear  1903  it  will  be  necessar}^  to  segregate  all  the  items  relating  to 
the  establishment  of  the  new  currency  system  from  the  other  items  in 
the  treasury  and  available  for  appropriations,  as  well  as  to  consider 
certain  other  items  of  an  extraordinary  nature  that  during  the  fiscal 
year  1903  have  gone  to  increase  the  sum  available  for  appropriations. 

The  $3,(.)(JO,(J0»J  appropriated  by  Congress  for  the  relief  of  the  Phil- 
ippine Islands  by  the  act  approved  March  3,  1903,  is  involved  in  the 
statement  above  given,  from  which  large  appropriations  have  been 
made  for  the  purposes  contemplated  by  the  act  of  Congress.  Elimi- 
nating all  transactions,  both  debit  and  credit,  relating  to  the  new  currency 
system  and  likewise  the  whole  of  the  $3,000,000  Congressional  appro- 
priation and  the  items  that  have  been  appropi-iated  out  of  that  fund 
b}'  act  of  the  Commission  from  the  computation,  and  confining  the 
inquiry  to  regular  sources  of  income  and  ordinary  and  extraordinary 
appropriations,  it  appears  that  the  true  amount  availal)le  for  appro- 
priations at  the  end  of  the  fiscal  year  1903  was  $2,173,931.28,  money 
of  the  United  States. 

It  will  be  observed  that  this  sum  is  little  more  than  one-half  the 
sum  that  was  available  for  appropriations  at  the  close  of  the  fiscal 


OF    THK    PHILIPriNE    ISLANDS,    1900-1903.  657 

year  VM)2.  In  addition  to  the  sum  available  for  appropriations  at  the 
close  of  the  Hscal  j^ear  1902  there  came  into  the  Treasvuy  during-  the 
fiscal  year  1903  very  large  repayments  from  appropriations  before 
that  time  made.  The  shrinkage  in  the  sum  remaining  available  for 
appropriation  therefore  absorbed  not  ordy  nearly  one-half  of  the  sur- 
plus available  at  the  close  of  the  fiscal  year  1902,  but  likewise  the 
whole  amount  of  the  repayments  referred  to.  There  will  doubtless 
be  more  or  less  repayments  from  appropriations  made  in  the  fiscal  j'ear 
1903,  available  for  iiso  du4-ing  the  fiscal  year  1901,  but  the  sum  thus 
to  be  made  available  will  doubtless  be  materially  less  than  in  the  pre- 
vious year,  l)ecause  as  time  goes  on  appropriations  are  more  carefully 
scrutinized  b}'  the  Commission  and  excessive  appropriations  are  elimi- 
nated, the  appropriations  becoming  constantly  more  nearly  the  amount 
actualh'  required  for  expenditures. 

It  is^  apparent,  therefore,  that  a  very  large  inroad  was  made  upon 
the  available  surplus  during  the  fiscal  year  1903,  and  that  a  like  inroad 
another  year  would  leave  very  shallow  water  under  our  financial  ship. 
While  it  is  true  that  the  purpose  of  a  surplus  is  to  provide  needed 
general  improvements,  yet  it  is  not  considered  wise  to  run  too  near  the 
bottom  at  any  time.  There  are  ah^ays  liable  to  be  special  emergencies 
by  great  conflagrations,  earthquakes,  incursions  of  epidemic  diseases, 
and  failure  of  crops,  that  must  l)e  met  l)y  large  appropriations  tempo- 
rarily, and  it  is  indispensable  that  thei'e  should  b,e  always  available  a 
reasonable  surplus  to  meet  such  emergencies,  particularly  in  view  of 
the  fact  that  Congress  has  not  authorized  the  insular  government  to 
issue  bonds  or  incur  indebtedness,  except  in  very  special  instances, 
none  of  which  would  meet  the  emergencies  above  stated.  It  is  believed 
that  there  should  be  the  utmost  economy  practiced  in  all  parts  of  the 
Government,  and  that  appropriations  should  be  kept  clearly  within 
visible  and  certain  revenue.  During  the  fisc^al  year  1903  there  were 
turned  back  into  the  Treasury  the  sum  of  Sl,027,T53.tW:  from  appro- 
priations that  had  l)een  made  during  that  fiscal  year,  clearly  indicating 
that  the  appropriations  in  many  cases  had  been  excessive.  The  policy 
of  making  excessive  appropriations  is  deemed  inadvisable,  and  it  is 
thought  to  be  far  more  desirable  to  bring  the  appropriations  down  to 
the  indispensable  needs  of  each  Inireau,  meeting  a  deficiency,  if  such 
necessaril}^  occurs,  by  a  deficiency  appropriation  bill. 

The  total  receipts  and  disbursements  (expressed  in  U.  S.  currency) 
of  tiie  insular  government  during  the  fiscal  year  ending  June  30,  1903, 
were  as  follows: 

RECEIITS. 

Ordinary  revenueH,  fiscal  j'ear  1903,  cxfluHivf!  of  all  re- 
fundable items: 

CiiHtoins  revenues %>0, 215, 551. 88 

Postal  revenues 145,  702.  53 

Internal  revenues 7,  867.  01 

Miscellaneous  revenucH— 

Notarial  and  judicial  fee:-- 50, 190.  06 

Insular  cold-storage  and  it-e  jjlaiit 330,  038.  56 

The  insular  treasurer 37,  711.  32 

Tlie  Philipi)ine  Commission __1, 146. 09 

Department  of  commerce  and  police! 74, 509. 91 

Department  of  the  interior 63,  569.  37 

Department  of  jiublic  instruction 32,  922.  82 

Unassigned  service 5, 26^:.  82 

, $9,  964,  472.  37 


G58 


KKPOKTS    OK    THE    CIVIL    OOVKHNMENT 


Extraordinary   revcnnrs,   (»x('lnsiv(>  of   all    rofiiiidalilc 
items: 

Sale  of  .uMinboats  to  the  U.  S.  (iovorniiiont $208,819.67 

Seized  funds  (inclndinij  funds  seized  in  prior  fiscal 
years  covered  into  the  irencu'al  fund  under  au- 

tlioritv  of  A ct  (JOS ) .^ .• 28!),  470.  38 

Cable  ecincessions (iO,  29 1 .  92 

$567, 581 .  97 

City  iA  iManila 1,  542,  675.  96 

12, 074, 730. 30 

DISBURSEMENTS. 

Ordinary  expenditures,  fiscal  year  1903: 

IT.  S.  Philippine  Commission $124,  835.  36 

The  executive 460,  380.  89 

Department  of  finance  and  justi<;e 1 ,  451 ,  ISO.  72 

Department  of  the  interior 764,  416.  94 

Department  of  commerce  and  police 2,  619,  251.  09 

Department  of  iiublic  instruction 1 ,  780,  759.  33 

Unassigned  service; 313,  337.  35 

$7,  514, 161.  68 

Extraordinary  expenditures   other  than  refunds  and 
loans: 

Public  Avorks 2,  041,  963.  52 

Contributions  to  provinces  other  than  refunds  and 

loans 69,  999.  72 

Public  health,  sanitary  and  other  preventive  meas- 
ures   ^ 357,  229.  03 

The  Philippine  census 554,  433.  31 

The  Louisiana  Purchase  Exposition 66,  757.  64 

Lumbang  lire  claims 4,  641.  23 

3,  095,  024.  45 

City  of  Manila 1,  947,  929.  93 

Total 12,  557, 1 16.  06 

Summary  fiacal  year  J 003,  hichidhiy  rrrevvrti  and  e.vpeiaJitiiriK  of  tJic  clly  uf  Manila. 
[Values  expressed  in  U.  S.  currency.] 


Ordinary  revenues,  exclusive  of  all  refundable  items 

Extraordinary  revenues,  exclusive  of  all  refundable  items 

Ordinary  expenditures 

Extraordinary  expenditures 

Excess  of  ordinary  and  extraordinary  expenditures  over  ordinary 
and  extraordinary  revenues 


511,506,635.47 
508, 194. 83 


482, 385 


12,557,110.00 


Credit. 


S.'^,  992,1.39.  .54 
3, 50 1,  976. 52 


12,557,110.06 


In  the  foregoing  statement  all  receipts  and  disbur.sements  b}'-  reason 
of  the  new  currency  S3^stelH  and  on  account  of  the  Congressional  relief 
appropriation  of  $3, 000,000  are  excUided. 

Of  the  total  receipts,  §i>,215,551.88  came  from  customs  duties,  and 
that  sum  is  87.5  per  cent  of  the  total  receipts  of  the  government, 
excluding  from  the  computation  all  items  relating  to  the  new  currency 
system  and  the  13,000,000  Congressional  relief  fund. 

Included  in  the  receipts  of  the  government  for  the  fiscal  year  1903, 
and  therefore  contributing  to  the  ))alance  availal)lc  for  appropriations 
June  30,  1903,  w^re  the  Uxo  following  items: 

Seized  funds  turned  into  the  general  fund .?267,  663.  26 

Sale  of  gunboats  to  the  United  States  Government 208,  819.  67 

Aggregating 476,  482.  93 


OF    THE    PHILIPPINK    ISLANDS,    1!)0()-1U03. 


659 


These  items  are  not  revenue  in  an}'  proper  sense,  and  like  items  will 
not  hereafter  contribute  to  the  income  of  the  government.  The  seized 
funds  have  been  carried  as  special  deposits  under  the  terms  "  seized 
funds  in  the  insular  treasur}^"  down  to  the  latter  part  of  the  fiscal 
year  11)03,  and  b}'  virtue  of  Act  No.  608  of  the  Commission  they  were 
turned  into  the  general  fund,  and  no  longer  appear  in  the  statement 
of  the  treasurer  or  auditor  as  seized  funds.  The  gunboats  referred 
to  had  been  purchased  during  the  military  regime  out  of  insular  funds, 
and  passed  over  to  the  United  States  Navy.  By  act  of  Congress  the 
sum  stated,  1208,819.67,  was  appropriated  to  reimburse  the  insular 
government  for  them,  and  that  sum  takes  the  place  of  a  claim  that  had 
before  existed  against  the  Government  of  the  United  States,  and  is 
considered  to  be  a  final  adjustment  of  that  matter  between  the  insular 
and  the  United  States  Governments. 

The  sums  above  stated  are  all  in  money  of  the  United  States. 

The  following  tabulation  shows  in  brief  form  the  total  receipts  and 
withdrawals  in  the  insular  treasury  during  the  tiscal  year  1903: 


Character  of  item. 


Balance  due  government  Juli'  1,  1902 

Deposits  nn  account  of — 

Customs  revenues 

Postal  revenues 

Internal  revenues 

Miscellaneous  revenues 

E.  K.  A.  and  C.  Tel.  Co.,  Visayan  concession 

Seized  f\inds  turned  into  general  treasury 

Saleof  Kunboatsto  U.  8.  Gf)vemment 

Repayments  to  appropriations 

Sales  of  rice,  emergency  fund  

Sales  of  rice,  insular  purchasing  agent 

Sales  of  supplies 

Refundable  export  duties 

[Philippine  pesos  c<  lined  fn.ni  bullion  purchase 

Sale  of  bonds  and  preniiuiu  thereon. 

Relief  fun d  voted  by  Congress 

Surplus,  custi  Pins  auctions  sales  (sec.  283,  act  No.  355) 

Outstanding  liabilities 

Ui val id  ni(  nu-y  orders 

Province  of  Rizal  (sec.  5  (g),  act  No.  ')a6)  

City  of  Manila 

Currency  received  in  exchange  for  equivalent  in  other  c\nTency 
Balance  due  treasurer  June  30,  1903 


Total  debit. 


withiu'.awai.s. 


Accountable  warrants 

Settlement  warrants - 

Postal  covering  in  warrants 

fMirreney  given  in  exchange  for  the  equivalent  in  other  currency.. 
Jialance  due  government  on  June  30,  1903 


United  States 
currency. 


Jl,  256, 850. 90 

5, 42S,  357. 31 

103, 358. 46 

29, 750. 48 

433, 544. 51 

5, 586. 38 

14,269.78 

208,819.67 

130,735.65 

42, 271. 12 

10,661.85 

223,956.89 

243, 834. 14 

1,600,000.00 

3, 075, 390. 00 

3,000,000.00 

4,154.49 

15.00 

5,537.76 

304.47 

634,778.11 

136,938.91 


16,589,115.88 


4,273,348.27 

217, 628. 06 

103, 3.58. 46 

1,140,978.00 

10, 853, 803. 09 


16,589,115.88 


Mexican 
currency. 


810, 755, 013. 15 
9, 185, 104. 12 


448, 547. 49 

511,965.77 

71,876.98 

673, 497. 46 


3, 614, 187. 65 

848, 507. 31 

1,219,922.04 

3,243,915.40 

681,076.23 


5,673.04 
233.99 


1, 668. 91 

2,309,464.04 

2,832,95.5.70 

539,269.39 


36, 943, 378. 67 


32, 882, 330. 66 
3,705,977.26 


355,070.75 


30, 943, 378. 67 


Attention  has  been  called  to  some  of  the  items  of  receipts  that  are 
not  lia])le  to  reappear  in  any  subsequent  year. 

Attention  .should  l)e  likewise  called  to  some  of  the  items  of  disburse- 
ment foi-  tlie  fiscal  y(^ar  1!I03  that  may  be  regarded  as  not  likely 
to  recur  and  as  extraordinary  in  their  character,  as  well  as  to  the  large 
amount  tliat  has  been  expended  during  that  period  for  public  improve- 
ments of  a  permanent  character. 

The  largest  single  item  of  an  extraordinary  character  was  $.582,187.36 
for  the  PhiUppine  census.     There  has  been  expended  toward  the  St. 


C60  REPORTS    OF    THE    CIVIL    OOVKUNMKNT 

Louis  Exposition  !i^()(),4;'(K05).  Tiiero,  were  likewise  loans  to  the  prov- 
inces amount ino-  to  $lt,"). !»(!(). HO,  and  payments  and  contributions  to  pro- 
vincial o-overnments  of  $1(32, 800. 07.  There  is  also  included  in  the 
expenses  the  sum  of  $2,2IP>,1T!>.(!9  for  what  are  considered  permanent 
improvements.  Among-  the  important  permanent  improvements  are 
the  improvement  of  the  harbor  at  Manila,  construction  of  the  Benguet 
road  and  other  important  insular  roads  and  bridges,  construction  and 
equii)ment  of  a  government  laboratory,  payment  for  boats  for  the 
coast  guard  and  transportation  service,  large  additions  to  the  customs 
house  at  jNIanila,  and  exj)ensive  public  improvements  in  the  city  of 
Manila,  properly  chargeable  to  that  city  although  paid  from  the  insular 
treasury,  as  are  all  appropriations  for  the  city  of  Manila. 

The  matters  relating  to  the  expenditure  of  the  $8,000,000  Congres- 
sional appropriation  for  the  relief  of  the  Philippine  Islands  are  not 
entered  into  in  detail  in  this  report,  because  that  expenditure  has  been 
under  the  immediate  direction  of  the  civil  governor,  and  it  is 
understood  that  his  report  will  cover  all  necessar}^  details  in  that 
respect. 

Attention  is  invited  to  the  effect  upon  insular  revenues  of  the  act  of 
Congress  of  March  8,  1902,  relating  to  articles  shipped  from  the 
Philippines  to  the  United  States.  It  was  doubtless  the  purpose  of 
that  act  of  Congress  to  furnish  relief  to  the  insular  treasury  by  pro- 
viding that  the  duties  collected  upon  imports  from  the  Philippines 
into  the  United  States  should  be  returned  to  the  insular  treasury;  but 
Congress  likewise  provided  that  of  the  export  duties  collected  in  the 
Philippine  Islands  on  products  shipped  to  the  United  States  and  there 
entered  free  of  duty,  the  amount  charged  as  export  duty  should  be 
refundable  from  the  Philippine  revenues.  The  total  amount  collected 
in  the  United  States  as  customs  duties  on  exports  of  the  Philippine 
products  from  the  islands  from  March  S,  1902,  when  the  act  was  passed, 
down  to  August  31,  1903,  was  $298,662.04.  Of  this  sum  $40,000  has 
been  reserved  by  orders  of  the  Secretary  of  the  Treasury  of  the  United 
States  to  pa}"  for  the  expenses  of  collection;  but  it  is  respectfully 
urged  that  under  the  act  of  Congress  the  expenses  of  collection  are 
not  chargeable  against  the  fund.  The  act  of  Congress  makes  no  such 
provision;  it  creates  a  special  trust  fund  out  of  the  duties  so  received, 
and  directs  their  return  to  the  insular  treasury,  and  it  is  considered 
that  the  trust  fund  in  its  entirety  ought  to  be  paid  over  to  the  insular 
treasury.  During  the  same  period  the  amount  of  export  duties  col- 
lected in  the  Philippine  Islands  on  Philippine  products  shipped  to  the 
United  States,  and  there  entered  free  of  duty  under  the  provisions  of 
the  said  act  of  Congress,  was  $415,421.  !»7  in  United  States  money  and 
$657,602.91  local  currenc3^  Reducing  the  amount  of  local  currenc}^ 
to  U.  S.  currency  at  the  existing  ratio  of  2.30  for  1  the  total  amount 
is  $701,336.28  U.  S.  currency.  This  money  is  practically  all  refund- 
able from  the  insular  treasury,  upon  proper  proof  being  furnished 
that  the  articles  so  exported  to  the  United  States  were  consumed  therein. 
Deducting  the  amount  collected  in  the  United  States  as  aforesaid  from 
the  amount  of  refundable  export  duties  collected  in  the  Philippine 
Islands  there  remains  a  balance  of  $442,674.24  U.  S.  currency,  by 
which  amount  the  insular  treasury  is  poorer  than  it  would  have  been 
if  Congress  had  not  made  the  legislation  referred  to.  The  only  real 
effective  manner  in  which  the  Congress  of  the  United  States  can  aid 
the  insular  revenues  and  aid  the  Filipino  people  by  tariff  legislation, 
is  b}'  an  entire  removal  of  or  a  great  reduction  in  the  duties  imposed 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  661 

in  the  United  States  upon  products  of  the  Philippine  Islands 
imported  therein,  and  a  repeal  of  that  portion  of  the  act  of 
Congress  which  provides  for  a  refund  from  the  Philippine  revenues 
of  amounts  collected  in  the  islands  as  export  duties  on  products  shipped 
to  the  United  States  and  there  entered  free  of  dut3^  The  market  thus 
opened  to  the  people  of  these  islands  would  give  a  greatly  needed 
stimulus  to  industr}'  here,  and  thereby  largely  increase  the  producing 
capacity  of  the  people  and  their  ability  to  live  in  a  better  manner,  to 
pav  a  sufficient  amount  of  taxes  to  carr}"  on  the  government  properl}?-, 
and  to  bu}'  the  products  of  the  manufacturers  of  the  United  States  in 
greater  measure.  The  two  industries  that  need  this  help  and  consider- 
ation more  than  any  others  are  the  sugar  and  tobacco  interests.  It  is 
believed  that  a  reduction  of  the  tariff  upon  those  articles  produced  in 
the  Philippine  Islands  and  imported  into  the  United  States  to  25  per 
cent  of  the  Dingley  tariff  would  furnish  such  a  degree  of  relief  as 
would  enable  our  producers  to  continue  their  production,  and  thereb}^ 
greatly  to  promote  the  interests  of  all  the  inhabitants  of  the  islands, 
without  the  possibility  of  producing  formidable  competition  in  the 
United  States.  This  subject  is  not  discussed  at  length  in  this  report, 
because  it  is  understood  that  it  will  be  presented  more  fully  in  the 
report  of  the  civil  governor  to  the  Commission,  but  the  discussion  is 
entirely  pertinent  and  vital  to  the  question  of  insular  revenues. 

SEIZED    FUNDS    AND    SPECIAL    DEPOSITS. 

Acting  under  the  authority  of  the  act  of  Congress  approved  July  1, 
1902,  Act  No.  608  was  passed  on  the  30th  day  of  January,  1903,  under 
the  provisions  of  which  the  "Seized  funds  and  special  deposits"  that 
have  heretofore  appeared  under  that  heading  in  the  treasurer's  state- 
ment were  converted  into  cash,  so  far  as  was  practicable,  and  turned 
into  the  general  fund  of  the  treasury.  The  total  sum  thus  realized 
during  the  fiscal  year  1903  was  $267,663.26,  and  since  that  date 
$131,582.88,  which  latter  sum  will  appear  in  the  financial  statement 
for  the  fiscal  year  1901. 

The  auditor's  report,  containing  a  detailed  statement  of  all  receipts 
and  disbursements  of  every  department  of  the  government,  is  hereto 
annexed  and  marked  Exhibit  No.  5. 

INSULAR   BUDGET. 

Since  the  organization  of  substantiallv  all  the  bureaus  of  the  insular 
government  that  are  deemed  necessary  for  its  efficient  operation  it  has 
become  pi-acticable  to  pass  regular  appropriation  ])ills  but  twice  a  year, 
one  covering  substantially  the  first  half  of  the  fiscal  year,  from  July  1 
to  Jaiuuiry  1,  and  the  other  remaining  half,  from  January  1  to  July  1. 
IBut  aside  from  these  regular  appropriation  bills  special  acts  have  been 
necessary  making  appropriations  for  specific  purposes  not  foreseen  at 
the  time  of  the  enactment  of  the  regular  appropriation  bills.  Defi- 
ciency appropriation  bills  have  also  been  necessary  to  meet  unantici- 
Eated  calls  from  the  various  bureaus.  Appropriation  l)ills  for  the  first 
alf  of  the  fiscal  year  1904,  regular,  special,  and  deficiency  have  been 
enacted,  so  that  it  is  practicable  to  determine  the  sums  appropriated 
for  one-half  of  that  fiscal  year.  By  the  regular  appropriation  bill 
(act  No.  807)  passed  in  July,"  1903,  the  sum  of  $4,216,105.50  was  appro- 
priated for  the  regular  service  of  the  insular  goveriunent  for  the  first 
half  of  the  fiscal  year  1904.     By  subsequent  acts  further  appropria- 


6(52 


REPORTS    OK    THE    (^VTL    GOVERNMENT 


tlons  were  made  for  expenses  for  the  first  half  of  the  liseal  year  1904, 
as  I'ollows — 


Number  of  act. 

Amount  ap- 
proprialea. 

Number  of  act. 

Amount  ap- 
propriated. 

821 

818, 009. 00 

72,  000.  00 

528. 90 

1 ,  270.  80 

570. 00 

1,090.00 

1,500.00 

503.  82 

132. 80 

820 

$2  500  00 

8frJ 

852 

10,  000.  00 
000  06 

870 

800    

as7 

801 

909, 015.  00 
1  000  00 

896 

892 

1010 

905 

378, 959. 70 
115  117  82 

927 

1011 

Total 

810 

1,573  560  50 

making  a  total  of  $5,780,726,  money  of  the  United  States  for  ordinary 
expenses  in  the  lirst  half  of  the  fiscal  year  IDO-l. 

During-  the  iirst  half  of  the  liseal  year  loans  have  been  made  to  prov- 
inces which  will  probabl}'  not  be  able  to  repay  them,  as  follows: 

Act  No.  972,  province  of  Paragua $3, 000 

Act  No.  963,  province  of  Zambales 2, 500 

Making  a  total  of 5, 500 

for  this  class  of  expenditure  which  ought  to  be  treated  as  current 
expenditures,  owing-  to  the  poverty  of  the  provinces  referred  to 
and  the  improbability  of  repaj  ment.  This  sum  might  properly  be 
added  to  the  above  statement  of  ordinary  expenditures  for  the  first 
half  of  the  fiscal  year,  making  a  total  of  ordinary  expenditures  for  the 
first  half  of  the  fiscal  year  lt)04  of  $5,795,2ii6,"money  of  the  United 
States.  Estimating  that  the  regular  expenses  will  be  substantially  the 
same  for  the  second  half  of  the  fiscal  year,  the  result  will  be  that  the 
total  regular  expenses  for  the  fiscal  year  lOO-l  will  be  $11,590,452. 

Included  within  the  foregoing-  statement  are  appropriations  for  the 
regular  expenses  of  the  city  of  Manila. 

There  have  likewise  been  appropriated  during  the  first  half  of  the 
fiscal  year  1904  for  extraordinary  expenses,  the  following  sums,  stated 
in  money  of  the  United  States;  such  appropriations  when  made  in  local 
currency  having  been  reduced  for  the  purposes  of  this  statement  to 
money  of  the  United  States  at  the  authorized  ratio  at  the  time  of 
making  the  appropriation: 


No.  of 
act. 


794 
824 
801 
798 
831 
840 
845 
846 
835 
852 
858 
873 
880 
880 
893 
912 
918 
920 
923 
937 
981 
949 


Survey  of  roiid  from  Naguilian  to  Baguio 

E.xpositiDii  lioard 

Interest  on  ccrtiHcates  of  indebtedness 

Insular  pnrcliasting  agent 

Public  works,  imiirdvcnuMits,  etc 

Purchase  of  insi rumen ts,  etc.,  for  weather  bureau 

Improvement  of  grounds  of  Malaeafian  Palace 

Repairs  to  .school  buildings  at  Cervantes,  province  of  Lepanto-Bontoc 

Bcngiiet  road 

Kejiairs  to  wharves  at  Zamhoanga,  Uigan,  Parang,  and  Jolo 

Special  depo.sit  No.  29,  for  the  iirovince  of  ^iorsogon 

Survey  of  wagon  road  from  NaL;uilian  to  liaguio 

Refund  to  province  of  Tayalms,  dtjiosit  made  in  insular  treasury  in  1900 

Repairs  to  walls  along  the"  I'asig 

Rizal  Monument 

Completion  of  wharf  at  Jolo , 

Wagon  road  from  I'asaeao  to  Nueva  Caceres,  province  of  Ambos  Camarines... 

Construction  and  repair  of  roads  and  bridges 

Repair  of  (luartennaster  launch  I'hiladelphia  for  forestry  bureau 

Expense  of  monetary  conimi.ssion 

Purchase  of  the  orieiite  Hotel 

Suppression  of  epideinie  diseases,  and  care  and  support  of  lepers,  province  of 
Oriental  Negros 


Total. 


II.  S.  currency. 


»7, 500. 00 

375, 000. 00 

00, 000. 00 

100, 000. 00 

873,148.00 

8,060.50 

7,000.00 

400.00 

238, 575. 00 

10,000.00 

4,3.57.06 

2, 000.  00 

1,003.50 

5, 400.  00 

15, 000. 00 

2, 100. 00 

25, 000. 00 

84,000.00 

4,f),50.00 

10, 000. 00 

293,478.26 

1, 550. 00 


2, 128, 348. 32 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  663 

Likewise  for  extraordinar}"  expenses  for  the  cit}'  of  Manila  there 
was  appropriated  by  Act  No.  830,  for  public  works  and  permanent 
improvements,  the  sum  of  $351,648,  and  by  Act  No.  808,  for  purchase 
of  lands  and  so  forth,  $26,653.98,  making  a  total  of  $2,506,650.30, 
money  of  the  United  States,  appropriated  from  the  insular  treasury 
for  extraordinary  purposes  for  the  first  half  of  the  fiscal  year  1904. 
The  estimates  for  the  second  half  of  the  fiscal  year  1904  have  not  3^et 
come  in,  so  that  it  is  impossible  to  make  an  intelligent  forecast  as  to 
what  the  demands  will  be  for  extraordinary  expenditures  during  that 
period.  Certain  other  loans,  which  are  fully  detailed  in  the  auditor's 
report,  have  been  made  to  other  provinces,  but  these  will  doubtless 
be  repaid  in  time  and  can  not,  therefore,  be  considered  as  expenditures 
of  the  insular  government  in  any  proper  sense. 

JNIan}^  of  the  extraordinary  expenditur  s  above  referred  to  are  in 
the  nature  of  investments,  and  there  is  permanent  and  tangible  prop- 
erty to  represent  them;  such  as  the  Oriente  Hotel,  which  has  been 
purchased  for  much  needed  office  room;  improvement  of  the  harbor 
at  Manila;  completion  of  wharf  at  Jolo;  survey^s  and  construction  of 
road  to  Baguio;  repairs  to  wharves  atZamboanga,  Iligan  and  Parang; 
construction  and  repair  of  school  buildings  in  various  provinces;  pur- 
chase of  new  instruments  for  the  weather  bureau;  and  large  general 
improvements.  Extraordinary  expenditures  similar  to  these  will  con- 
stantly be  necessar}'  and  can  not  l)e  disregarded  in  making  estimates. 
The  appropriation  for  the  exposition  board  is,  undoubtedly,  much 
larger  than  will  be  necessary  for  the  second  half  of  the  fiscal  3'ear; 
but  the  interest  on  certificates  of  indebtedness  will  certainh^  be  as 
large  for  the  remainder  of  the  year  as  for  the  first  half.  Large 
appropriations  will  likewise  be  necessar}-  for  the  completion  of  the 
Benguet  road.  Appropriations  for  the  Rizal  Monument  will  not 
again  recur;  nor  will  the  expense  of  the  monetary  conmiission. 

If  the  estimate  were  to  be  based  upon  the  tlieor}-  that  the  total 
amount  required  for  extraordinary  expenses  for  the  fiscal  year  should 
be  dou))le  the  amount  for  the  first  half  of  the  fiscal  year,  or  $5,013,300.60 
money  of  the  United  States,  the  summar}-  would  be  as  follows: 

Total  estimates,  ordinary  expenditures S^ll ,  590, 452.  00 

Total  estimated  extraordinary  expenditures 5, 013, 300.  60 

Total  estimated  expenditures  for  fiscal  year  1901 16, 603,  752.  60 

The  revenues  of  the  insular  government  from  all  sources  as  depos- 
ited, aside  from  refundable  collections  during  the  first  five  months  of 
the  fiscal  year  1904,  enrling  November  30,  1903,  including  the  city  of 
Manihi,  amount  to  1?4,7T<),745.26.  Using  as  a  basis  the  revenues  last 
cited  it  is  estimated  that  the  revenues  for  the  fiscal  3"ear  1904  will  be 
as  follows: 

From  all  departmonts  of  the  insular  government  proper $10,  374, 018.  31 

From  thecitv  of  Manila 1,090,170.31 

From  the  citV  of  Manila  land  taxes,  1903  (1 J  per  cent  on  !?37,000.000), 

less  credits" 506,832.82 

One-lialf  land  tax,  1904,  due  and  payable  before  July  1,  1904  (1  per 

cent  on  $37,000,000) 370,  000.  00 

Making  a  total  of 12,  341,  021.  44 

Showing  an  apparent  deficit  of  $4,262,731.16  on  deducting  i-eceipts 
from  appropriations. 

Included  in  the  revenues  for  the  five  months  above  referred  to  are 


664  REPOETSi    OF    THE    CUVIL    GOVERNMENT 

$131,582.S8  ivcoivod  from  tlic  s:il(»  of  soizcd  copper  coins,  which  had 
before  remained  as  special  deposits  in  tlie  treasury,  and  the  sum 
of  ^185,448.75,  for  custouis  receipts  for  rhili))pinc  goods  imported 
into  the  United  States  and  passed  over  l)y  the  United  States  authori- 
ties to  the  Guaranty  Trust  Compan}^  in  New  York  to  the  credit  of  the 
insular  g'overnnient. 

In  the  statement  of  revenues  collected,  the  refundable  export 
duties  collected  in  Manila  on  exports  to  the  United  States  arc  not 
included,  nor  in  the  statement  of  exjwnditures  is  anything  included 
for  such  refunding  of  export  duties;  such  expoi't  duties  appearing 
upon  neither  side  of  the  account  need  not  be  taken  into  consideration 
in  framing  the  budget  for  the  year.  Nor  are  receipts  or  dislmrse- 
mcnts  b}'  reason  of  the  new  currency  system  and  money  })orrowed 
upon  certiticates  taken  into  consideration,  except  that  the  interest 
upon  such  certiticates  is  to  be  considered  as  a  disbursement.  On  the 
other  hand,  interest  received  from  the  deposit  of  insular  funds  with 
the  Guaranty  Trust  Company  of  New  York,  should  be  included  among 
the  revenues  of  the  insular  government  proper  when  proper  state- 
ments of  the  amount  thereof  shall  have  ])een  received. 

But  the  foregoing  statement  probal)ly  involves  an  excessive  estimate 
of  disbursements.  The  appropriations  for  permanent  improvements 
and  cxtraordinar}'  expenclitures  already  made  during  the  liscal  year 
1904  are  very  large.  It  is  impracticable  for  the  insular  government 
to  continue  appropriations  for  those  purposes  on  the  same  basis, 
nor  is  it  necessary  to  do  so  at  present.  The  appropriations  that  are 
to  be  expended  under  the  direction  of  the  bureau  of  architecture  are 
very  largely  undrawn,  and  must  continue  so  for  a  considerable  period, 
because  the  chief  of  that  bureau  has  not  available  men  to  superintend 
and  carry  on  the  work  of  construction,  and  further  appropriations  for 
that  bureau  ought  not  to  be  made  till  the  bureau  is  more  nearl}'  abreast 
of  its  work. 

Assuming  that  no  further  appropriations  for  general  improvements 
will  be  made,  except  by  the  city  of  Manila,  during  the  liscal  .year,  and 
that  the  expenditures  for  those  purposes  l)y  the  city  of  Manila  will  be 
as  stated  in  the  estimate  made  b}^  the  municipal  board  in  its  report  for 
the  current  j^ear,  and  that  the  basis  of  income  will  be  substantially  as 
above  stated,  the  estimate  will  be  as  follows: 

Total  of  regular  expenditures  for  the  fiscal  year  1904  for  the  insular 

government,  including  the  city  of  Manila $11,  590,  452.  00 

Total  appropriated  for  extraordinary  expenses  during  the  first  half 
of  the  fiscal  year 2, 506,  650.  30 

Estimated  appropriatipns  for  extraordinary  expenditures  for  the  city 
of  Manila  for  the  second  half  of  the  fiscal  year 200, 000.  00 

Total  appropriations  for  the  year 14,  297, 102.  30 

Total  estimated  revenues  for  the  year,  including  the  city  of  Manila.     12,341,021.44 

Showing  an  apparent  deficit  of 1,  956,  080.  86 

Attention,  however,  should  be  drawn  to  one  other  asset.  The  state- 
ments of  the  auditor  show  that  down  to  November  30, 1903,  there  were 
on  the  books  of  his  office  $1,376,284.58  United  States  currency  of 
appropriations  imdrawn  on  account  of  the  fiscal  3  ear  1903  and  prior 
3'ears.  A  consideral)le  portion  of  this  amount  will  not  be  required,  and 
will  be  turned  back  into  the  treasury;  but  that  portion  of  those 
appropriations  which  is  devoted  to  the  construction  of  public  works  is 


OV    THE    PHILIPPINE    ISLANDS,    1900-1903,  665 

continuous  and  will  not  be  returned.  It  is  estimated  that  there  ought 
to  be  $1,000,000  of  the  appropriations  referred  to  returned  to  the 
treasur3\  Deducting  $1,000,000  from  the  apparent  deficit  shown 
above,  would  leave  an  actual  probal)le  deficit  amounting  to  $956,080.86. 
The  books  of  the  auditor  likewise  show  that,  although  more  than 
five  months  of  the  fiscal  year  1904  have  elapsed,  there  is  yet  on  the 
books  of  this  ofiice,  exclusive  of  the  gold-standard  appropriations,  the 
sum  of  $5,89^3,784.68  U.  S.  currency  undrawn  on  account  of  the  fiscal 
year  1904.  The  two  facts  kist  stated  indicate  quite  clearly  that  exces- 
sive appropriations  have  been  made,  and  suggest  the  wisdom  andneces- 
sit}"  of  cutting  more  closely  appropriations  for  ordinary  expenses  and 
the  avoidance  of  making  large  appropriations  for  public  works  long  in 
advance  of  the  necessity  for  their  use.  Until  estimates  are  submitted 
upon  more  favorable  bases,  it  will  be  impracticable  to  make  valuable 
estimates  of  proposed  expenditures  for  the  year. 

BUDGET  OF  THE  CITY  OF  MANILA. 

The  aggregate  of  expenses,  ordinal*}'  and  extraordinary,  for  the  city  of 
Manila  for  the  first  five  months  of  the  fiscal  year  1904  was  $835,551.92. 
Assuming  that  the  aggregate  of  expenses,  ordinary  and  extraordinary, 
for  the  whole  year  would  be  in  the  same  proportion,  the  total  for  the 
j'^ear  would  be  $2,005,324.56,  all  figures  indicating  sums  in  money  of 
the  United  States.  The  estimate  of  the  aggregate  expenses  for  the 
fiscal  3'ear  made  by  the  municipal  l)oard  is  $2,420,663. 

The  aggregate  of  receipts  deposited  by  collecting  oflicers  of  the  city 
of  Manila  for  the  same  five  months  was  $457,355.92.  Thirty  per  cent 
of  the  expenses  of  the  city  of  Manila  are  borne  by  the  insular  govern- 
ment, and  that  30  per  cent  for  the  year  amounts  to  $601,597.36,  based 
upon  a  total  expenditure  of  $2,005,324.56.  The  estimate  of  collections 
from  all  sources  of  revenue  for  the  fiscal  year  1904  is  $1,974,486.98, 
based  upon  the  collections  that  have  been  made  during  the  five  months 
aforesaid,  and  upon  the  estimate  of  the  sum  that  will  be  received 
during  the  year  for  land  taxes,  land  taxes  for  the  fiscal  year  1904  in 
the  cit\^  of  Manila  having  in  no  part  ])een  collected  down  to  this  time. 
Adding  to  the  collections  of  revenues  from  all  sources  the  sum  of 
$601,597.36  to  ])e  contributed  by  the  insular  government,  the  total 
available  resources  of  the  city  of  Manila  for  the  year  would  amount  to 
$2,576,084.34.  From  all  of  which  it  appears  that  the  income  of  the 
city  of  Manila  will  ho  sufiicicnt  to  meet  its  ordinary  and  extraordinary 
expenses  for  the  fiscal  year  1904. 

The  law  provides  for  reimbursement  to  the  insular  government  by 
the  city  of  Manila  for  advances  made  for  installing  the  ''pail  system," 
which  advances  nnist  be  considered  in  further  estimates.  The  pail  s>\s- 
tem  is  purely  a  local  sanitary  nieasurt^  and  not  oidy  does  the  law  pro- 
vide that  the  expense  tluM'(K)f  should  be  borne  ))y  the  city  of  Manila, 
but  it  would  be  an  injustice  to  the  other  portions  of  the  Philippine 
Islands  to  pay  sucii  expenses  from  the  revenues  of  the  general  govern- 
ment. The  finances  of  the  city  are  now  in  such  condition  that  the 
reimbursement  ought  innnediatcly  to  be  made,  and  it  is  recommended 
that  the  treasurer  be  directed  to  cause  the  adjustment  of  the  expense 
referred  to.  Some  portion  of  the  plant  of  the  ])ail  system  has  been 
destroyed  by  fire,  but  this  loss  should  fall  upon  the  city,  in  the  same 
way  that  the  destruction  of  any  other  property  would  fall  upon  it,  and 
rujt  upon  the  insular  government. 


666  KKl'OUTS    OK    TIIK    CIVIL    (lOVKKNMENT 

TIIK    CUSTOMS   SERVICE    AND   THE   TARIFF. 

Tho  term  ciistoins  service  in  the  Philippine  Islancis  embi'iiees  many 
functions  that  would  be  performed  by  separate  bureaus  in  the  United 
States,  but  whicli  are  here  carried  on  under  the  direction  of  the  col- 
lector of  customs  for  the  Philippine  Islands.  In  addition  to  regular 
customs  work  the  collector  of  customs  has  charge  of  the  duties  per- 
taining to  navigation,  steaniI)oat-inspection  service,  revenue-cutter 
service,  innnigration,  supervisit)n  of  lisluM'ies  (so  far  as  lishery  rights 
in  harbors  are  concerned),  registration  of  Chinese,  and  the  supervision 
of  pilots  and  their  associations  throughout  the  islands. 

Attention  was  called  in  the  leport  from  this  oUiceto  the  Commission, 
made  one  3'ear  ago,  to  the  expense  of  bringing  imported  merchandise 
from  steamers  in  the  harbor  to  the  custom-house  and  wharves,  and  of 
landing  them  and  placing  them  in  the  proper  warehouses,  and  of  the 
delay  in  such  operations,  owing  to  the  insufficient  character  of  the 
lightering  and  landing  facilities  and  the  method  of  carrying  on  that 
business,  and  from  sorting  the  cargo  on  ])oard  the  incoming  steamers 
in  such  way  that  each  owner  might  receive  his  own  merchandise  in  his 
own  cascos  or  lighters,  or  cascos  and  lighters  engaged  I)}'  him  for  that 
purpose.  Steamers  had  been  subjected  to  great  demurrage  by  the 
delay  incident  to  that  process  and  to  the  insufficient  landing  facilities 
at  the  custom-house.  Since  the  date  of  that  report,  however,  large 
relief  has  been  obtained  in  regard  to  the  matters  complained  of.  The 
custom-house  has  been  greatly  enlarged  and  improved  at  an  expense 
of  ^75,000  U.  S.  currency,  whereby  the  original  amount  of  office 
room  has  been  nearly  doubled  and  suitable  quarters  have  been  pro- 
vided for  the  insular  surveyor's  division,  as  well  as  for  the  marine- 
hospital  service,  branch  telegraph  office,  and  branch  post-office,  with 
money-order  department.  The  personnel  employed  at  the  custom- 
house office  has  been  increased  and  improved  in  organization  during 
the  year,  and  the  duties  formerly  performed  at  the  office  of  tho  captain 
of  the  port  have  fieen  assignecl  to  the  collector  of  customs,  and  the 
office  of  the  captain  of  the  port  has  been  abolished.  The  congestion 
of  steamers,  lorchas,  cascos,  and  other  craft  in  the  Pasig  River  has 
been  largelv  relieved,  so  that  the  dispatch  of  goods  at  the  custom-house 
wharf  has  thereby  been  greatly  facilitated.  The  "running  check  sys- 
tem" in  the  discharge  of  vessels  has  been  more  and  more  used  until  it 
has  become  the  established  rule.  By  that  system  the  cargo  is  dis- 
charged into  either  lighters  or  cascos  and  transported  to  the  custom- 
house wharf  or  other  wharves  immediately  from  the  hold  of.  the  vessel 
without  sorting  on  board,  the  sorting  being  all  done  upon  the  wharves. 
The  sj'stem  has  resulted  in  much  (luicker  dispatch  of  vessels  l3nng  in 
the  harbor,  which  is  a  very  important  matter  for  mail  and  regular 
coasting  steamers.  On  Septeml)er  28,  1903,  Act  No.  81)7  was  passed 
makijig  appropriation  for  the  purchase  and  operation  of  the  "'Arrastre" 
plant  for  unloading,  conve^'ing,  and  delivering  imported  merchandise 
at  the  Manila  custom-house,  and  making  provision  for  the  operation 
of  that  plant  under  the  direction  of  the  collector  of  customs  of  the 
Philippine  Islands.  The  operation  called  "arrastre"  consists  in  the 
receiving  of  imported  goods  at  the  customs  wharves  from  the  lorchas, 
cascos,  or  lighters  in  which  the  same  have  been  brought  from  the 
steamers  to  the  customs  wharves  and  transporting  the  same  by  tram- 
ways or  other  facilities  to  the  proper  customs  warehouses.     This  oper- 


OF    THP:    PHILIPPINE    ISLANDS,    l!XW-liJ03,  667 

ation  had  been  performed  before  that  time  ])y  a  private  iirm.  It  was 
considered  highly  undesirable  that  the  steam  cranes  and  derricks  for 
unloading  goods  upon  the  customs  wharves  and  the  tramwa3^s  .should 
belong  to  private  individuals  and  be  operated  ])y  them.  It  was  par- 
ticularh"  objectiona])lc  at  Manila  in  view  of  the  fact  that  the  owners  of 
the  arrastre  plant  were  likewise  the  largest  owners  of  cascos,  lorchas, 
and  lighters  for  bringing  the  goods  to  the  customs  wharves  from 
the  steamers,  and  the  charge  was  often  made,  justl}^  or  unjustly,  that 
importers  who  did  not  employ  the  owners  of  the  arrastre  plant  to  do 
their  lightering  were  discriminated  against  so  that  their  goods  were 
greatly  delaj'ed  in  landing  and  their  demurrage  expenses  Avere  made 
much  larger.  Under  the  provisions  of  Act  No.  S!)7  the  government 
undertakes  to  perform  the  arrastre  operations  at  actual  cost,  so  that 
importers  are  furnished  the  best  of  facilities  and  all  extortionate 
charges  or  discrimination  are  rendei'cd  impossible. 

The  effect  of  these  various  changes  has  been  greatly  to  facilitate  the 
discharge  of  imported  cargoes  at  Manila,  and  to  diminish  the  delay, 
expense,  and  difficult}^  before  experienced  in  that  line.-  It  is  )>elieved 
that  the  facilities  now  existing  are  substantially  adequate  for  the  needs 
of  the  port  until  such  time  as  the  new  harbor  improvements  shall  have 
been  completed.  At  that  time  a  new  custom-house  and  storehouses 
will  be  constructed  on  the  new  ground  being  made  by  the  harbor- 
dredging  operations,  and  the  whole  business  will  be  transferred  sub- 
stantiall}^  from  the  Pasig  River,  where  it  is  now  carried  on,  to  the  new 
water  front. 

The  change  that  has  been  made  in  the  status  of  the  court  of  customs 
appeals  has  been  heretofore  commented  on  in  this  report  and  need  not 
further  be  dealt  with  at  this  time. 

Much  complaint  has  ])een  made  that  the  charges  for  interisland 
transportation  for  freight  and  passengers  were  excessive,  and  that  a 
combination  had  been  made  among  the  various  persons  and  corpora- 
tions engaged  in  that  traffic  to  maintain  the  excessive  rates  of  charge 
without  competition.  Under  the  law  as  it  existed,  down  to  November 
17,  1902,  no  foreign  vessel  w^as  entitled  to  engage  in  the  local  coast- 
wise trade.  The  trade  was  all  in  the  hands  of  certain  local  persons 
and  corporations  who  were  abundantly  fortified  in  their  situation  by  the 
provisions  of  the  law  aforesaid.  Accordingly,  on  the  date  last  stated, 
the  Commission  passed  Act  No.  520,  called  the  "coastwise  trade  act," 
which  permitted  any  vessel,  foreign  or  otherwise,  to  obtain  a  special 
coastwise  license  and  to  engage  in  the  local  trade  upon  the  payment 
of  certain  taxes  and  compliance  with  certain  other  conditions.  Under 
this  act  eighteen  vessels,  most  of  them  of  small  tonnage,  have  secured 
licenses,  four  of  them  sailing  vessels  bearing  the  United  States  flag, 
and  one  a  steamer  bearing  the  United  States  flag;  the  others  are  Nor- 
wegian, German,  or  Japanese.  The  act  also  makes  illegal  any  agree- 
ment betw'cen  masters,  owners,  or  agents  of  vessels  engaged  in  the 
coastwise  trade  to  fix,  increase,  or  maintain  I'ates  of  transportation  for 
passengers  or  merchandise,  or  to  divide  the  coastwise  trade  and  busi- 
ness of  these  islands  for  the  purpose  of  restraining  and  avoiding  com- 
petition. The  act  also  authorizes  the  civil  governor  to  appoint  a 
commission  authorized  to  classify  vessels,  merchandise,  and  passengers 
for  the  purpose  of  carriage  in  the  coastwise  trade,  and  to  fix  the  max- 
imum rates  to  be  charged  thereunder  for  the  transportation  in  the 
several  classes  of  vessels  of  the  various  classes  of  merchandise  and 


668  REPORTS    OF    THK    CIVIL    GOVERNMENT 

passonocrs  from  one  point  to  another  in  the  rhilip])ine  Iskmds,  and 
provides  that  the  niaxiniuni  rates  thus  tixed  must  he  reasonahlc  and 
estahlished  onlv  after  a  ])ul)lie  heariny-  of  all  connnon  eaiiMers  involved. 
80  far  no  apjiointment  of  a  eommission  has  hecn  uiade  and  the  com- 
bination or  ajii-eement  aforesaid  has  been  dissolved,  and  freight  and 
passeno-or  rates  have  been  lowered  to  some  extent,  to  the  benefit  of 
the  commerce  of  the  islands. 

On  May  'i'.>,  1S>»»2,  the  Commission  passed  Act  No.  780,  providing 
for  the  examination  and  licensing  of  api)licants  for  the  position  of 
master,  mate,  patron,  and  engineer  of  seagoing  vessels  in  tlie  Philip- 
pine coastwise  trade  and  prescribing  the  number  of  engineers  to  be 
employed  by  such  vessels.  In  pursuance  of  this  act  a  board  on  Philip- 
pine marine  examinations  was  convened  in  July,  1903,  for  the  exami- 
nation of  such  masters,  mates,  patrons,  and  engineers  as  presented 
themselves,  and  186  licenses  were  issued.  Section  7  of  that  act  reads 
as  follows: 

On  and  after  August  first,  nineteen  hundred  and  three,  every  appUcant  for  Hcense 
as  master,  mate,  patron,  or  engineer  of  a  Philipi)ine  coastwise  vessel  shall  be  a  citi- 
zen of  the  United  States  or  of  the  Philippine  Islands:  Provided,  however,  That  any 
citizen  or  subject  of  anv  other  country  who  may  ))e  acting  as  master,  mate,  patron, 
or  engineer  of  any  Philippine  coastwise  vessel  at  the  time  of  the  passage  of  this  act 
may,  upon  applic^ation  to  the  insular  collector  of  customs,  be  granted  a  certificate  of 
8ervice,\vhich  shall  authorize  him  to  continue  to  act  in  the  Philippine  coastwise 
trade  as  such  master,  mate,  patron,  or  engineer,  as  the  case  may  be,  upon  his  making 
proper  showing  to  the  board  hereinbefore  created,  either  by  the  presentation  of  a 
properly  authenticated  license  from  some  other  recognized  maritime  country  satis- 
factory to  the  board  or  by  such  other  evidence  of  competency  and  good  character  as 
the  board  in  its  discretion  may  deem  sufficient. 

It  is  also  provided  that  he  shall  have  seen  at  least  two  years'  service 
in  the  coastwise  trade  of  these  islands  under  the  American  flag  and 
that  he  shall  take  the  following  oath: 

I  hereby  solemnly  swear  that  I  acknowledge  the  sovereignty  and  authority  of  the 
United  States  in  the  I'hilippine  Islands  and  of  the  government  constituted  by  the 
United  States  herein,  and  that  while  in  the  islands  I  will  support  and  maintain  the 
same,  and  that  I  will  not  at  any  time  hereafter  while  in  these  islands  or  while  serv- 
ing under  this  license  at  any  place  aid,  abet,  or  incite  resistance  to  the  authority  of 
the  United  States  or  of  the  government  established  by  the  United  States  in  these 
islands,  and  that  I  take  this  oath  voluntarily,  without  any  mental  reservation  what- 
soever.    So  help  me  God. 

Under  this  section  142  certificates  of  service  have  been  issued. 

Many  subjects  of  the  Kingdom  of  Spain  who  had  been  acting  as  mas- 
ter, mate,  patron,  or  engineer  of  Philippine  coastwise  vessels  prior  to 
the  passage  of  the  act  above  mentioned  have  declined  to  submit  evi- 
dence of  competency  and  good  character,  in  accordance  with  the  pro- 
visions of  said  section  7,  claiming  that  under  the  provisions  of  the  treaty 
of  Paris,  whereby  the  Philippine  Islands  were  ceded  by  the  Kingdom 
of  Spain  to  the  United  States,  they  are  protected  in  the  pursuance  of 
their  regular  employments  and  vocations  without  having  new  and  addi- 
tional })urdens  imposed  upon  them,  and  that  by  the  provisions  of  said 
section  7  they  are  placed  upon  a  parity  with  citizens  or  subjects  of  other 
countries  which  had  no  treaty  stipulations  with  the  United  States.  Their 
rights  in  this  contention  have  not  as  yet  been  permanently  determined. 
It  is  probably  advisable  that  there  should  be  a  judicial  determination 
thereof,  and  such  steps  will  probably  be  taken  as  will  enable  them  to 
continue  in  the  performance  of  their  duties  without  submission  to  fur- 
ther examination,  provided  the  court  shall  hold  that  they  are  entitled 
"so  to  continue. 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  669 

By  act  No.  787,  passed  on  June  1,  1903,  organizinj?  the  Moro  Prov- 
ince, the  legislative  council  of  that  province  is  authorized  to  provide 
by  regulations  for  the  use,  registration,  and  licensing  of  boats  of  Moro 
or  pagan  construction  of  less  than  10  tons'  measurement,  and  that  the 
gross  amount  of  customs  receipts  collected  within  the  province,  less  the 
cost  of  their  collection,  shall  constitute  a  special  fund  to  be  expended, 
in  the  discretion  of  the  legislative  council  of  the  province,  for  provin- 
cial, district,  and  municipal  purposes. 

The  imports  and  exports  to  and  from  the  ports  of  Iloilo  and  Cebu 
show  a  large  increase  duringthe  past  year.  For  the  purpose  of  improv- 
ing the  harbor  of  Iloilo  the  Commission  has  appropriated  the  sum  of 
$150,000,  and  for  the  purpose  of  improving  the  harbor  and  port  at 
Cebu  the  sum  of  $350,000  has  been  appropriated.  It  is  expected  that 
these  improvements  will  be  executed  as  soon  as  the  proper  contracts 
can  be  let. 

Under  the  act  of  Congress  of  March  8,  1902,  whereby  all  export 
duties  upon  produce  of  the  islands  imported  into  the  United  States  and 
there  consumed  are  to  l)e  refunded  to  the  exporters,  there  has  been  a 
great  increase  in  the  amount  of  hemp  shipped  from  these  islands  to 
the  United  States  in  order  to  obtain  a  refund  of  the  duties  paid  on  its 
exportation  here.  The  following  table  wall  show  the  increase  in  that 
trade  and  the  stimulus  that  has  been  given  to  it  b}^  the  act  of  Congress 
referred  to: 

Tons  of  hemj)  exported  from  the  Philippine  Islands  to  the  United  States  direct. 


Year. 

Tons. 

Year. 

Tons. 

1898 

7,9G5 
2r>,  713 
20, 304 

1901 

30,336 

1J^99                                                       

1902 

57, 693 

1900                        

For  the  first  nine  months  of  1903  there  were  46,156  tons  of  hemp 
exported.  At  the  same  rate  of  export  for  the  last  quarter  of  1903, 
the  total  exportation  for  the  year  would  be  61,511  tons. 

The  effect  of  this  act,  as  before  shown  in  this  report,  has  been  very 
materially  to  diminish  the  revenues  of  the  islands.  It  has  at  the  same 
time  doubtless  enabled  consumers  in  the  United  States  to  obtain  their 
hemp  at  a  lower  price  than  they  ever  obtained  it  before.  This  result 
is  in  a  sense  an  exploitation  of  the  islands  for  the  benefit  of  the  hemp 
consumers  in  the  United  States.  These  consumers  and  dealers  in  the 
United  States  obtain  an  advantage  over  consumers  and  dealers  in 
Manila  hemp  in  other  pails  of  the  world,  but  that  advantage  is  obtained 
at  the  expense  of  the  revenues  of  the  insular  government.  It  would  be 
largely  to  the  benefit  of  the  islands  to  have  that  provision  of  the  act  of 
Congress  repealed,  unless  compensation  be  provided  by  reduction  of 
the  duties  imposed  upon  other  products  of  the  islands  imported  into 
the  United  States,  so  that  their  production  may  be  stimulated  here  by 
opening  to  our  people  in  the  islands  the  large  markets  of  the  United 
States  on  a  favorable  basis.  It  is  not  deemed  cquita))le  that  the  insular 
revenues  should  be  discriminated  against  in  the  manner  that  they  are 
under  tlie  provision  of  the  act  of  Congress  as  to  hemp  without  adequate 
compensation  in  the  manner  indicated.  It  has  already  been  demon- 
strated by  experience,  as  elsewhere  stated  in  this  report,  that  the 

23181—04 13 


670  REPORTS    OF    THE    CIVIL    GOVERNMENT 

foaturos  whioli  were  introduced  into  the  act  of  Congress  intended  to 
be  coin})ensatory  are  not  compensatory  in  any  proper  sense  and  are 
entirely  inadequate. 

Detailed  statistics  in  regard  to  all  imports  and  exports  into  and  from 
the  islands  during  the  period  covered  by  this  report,  the  countries  from 
which  such  imports  have  come  and  to  which  such  exports  have  gone, 
and  the  quantities  and  classes  of  goods  imported  and  exported,  the 
values  thereof,  and  the  ports  of  the  islands  at  which  such  imports  and 
exports  have  been  made,  the  items  of  receipts  and  expenditures  at  the 
several  ports,  as  well  as  the  number  of  Chinese  arriving  at  and  depart- 
ing from  the  several  ports,  licenses  and  cortiticates  of  protection  issued 
atlhe  difierent  entry  ports  of  the  islands  to  coastwise  vessels  and  the 
tonnage  of  each  clas's  thereof,  and  the  list  of  vessels  engaged  in  trade 
between  the  Philippine  Islands  and  foreign  ports,  together  with  the 
names  and  flags  thereof,  and  lists  of  open  coastwise  ports  and  sub- 
ports  in  the  Philippine  Islands,  will  be  found  in  the  special  report  of 
W.  Morgan  Shuster,  collector  of  customs  for  the  Philippine  Islands, 
hereto  annexed  and  marked  "Exhibit  No.  6." 

For  purposes  of  comparison,  attention  is  invited  to  the  following 
statement  of  the  values  of  imports  and  exports  into  and  from  the 
Philippine  Islands  for  the  five  fiscal  years  ending  June  30,  1903,  rep- 
resented in  United  States  currency,  g"old  and  silver  coin  included: 


1899. 
1900. 
1901. 
1902  . 
1903. 


Imports. 


$13,637,417.00 
23, 043, 856. 00 
32,818,411.00 
41,072,738.00 
35, 099, 842. 00 


Exports. 


$16,041,302.00 
21,766,440.00 
26,431,262.00 
27, 157, 087. 00 
39,674,328.00 


Government  free  entries  are  not  included  in  the  foregoing  statement. 

It  will  be  observed  that  there  has  been  a  gradual  increase  in  the 
imports  each  succeeding  year  until  the  year  1903,  when  there  was  a 
fallingoff  of  practically  Ji!56,'000,000,  due  in  part  to  the  decreased  purchas- 
ing poAver  of  the  islands,  owing  to  the  industrial  depression  caused  by 
rinderpest,  locusts,  and  the  ravages  of  cholera;  and  more  largely  to 
the  fact  that  there  w^ere  imported  during  that  year  less  than  $2,000,000 
Mexican,  while  during  the  year  1902  there  were  imported  $8,652,648 
Mexican.  On  the  other  hand  it  will  be  observed  that  there  has  been  each 
3^ear  an  increase  in  exports  from  the  islands,  and  for  the  fiscal  year  1903 
the  exports  for  the  first  time  exceeded  the  imports.  This  increase  in 
exports  is  accounted  for  in  part  by  the  high  price  for  hemp  and  the 
large  exportations  thereof,  as  well  as  by  the  increased  exportation  of 
copra  and  raw  sugar,  and  the  exportation  of  $5,977,741  Mexican.  Of 
articles  of  import,  rice  includes  a  far  larger  value  than  an}^  other  com- 
modity. The  large  importation  of  rice  is  almost  wholly  the  result  of 
depressed  agricultural  conditions.  Its  importation  ought  to  be  less  in 
future  years  as  the  producing  capacity  of  the  islands  increases.  In 
fact,  no  rice  ought  to  be  imported.  The  islands  are  entirely  capable  of 
producing  all  the  rice  that  is  needed  for  consumption  in  them,  besides 
a  large  amount  for  export. 

The  chief  articles  of  import  into  the  Philippine  Islands,  in  the  order 
of  values  imported,  are  rice,  cotton  goods,  opium,  flour,  illuminating 
oil,  beer,  bituminous  coal,  cocoa,  and  refined  sugar.     England  still 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  671 

controls  a  large  proportion  of  the  import  trade  in  cotton  goods.  No 
reason  is  apparent  wh}^  that  trade  should  not  be  secured  by  the  United 
States,  and  greatly  extended  and  increased. 

Experience  has  demonstrated  that  there  are  inequalities  in  the 
existing  tariff  which  might  be  corrected  without  impairment  of  the 
revenues  and  with  advantage  to  the  general  commercial  interests  of 
the  islands.  In  order  that  such  inequalities  may  be  effectiv^ely  dem- 
onstrated, the  civil  governor  has  appointed  a  commission  of  represent- 
ative business  men  and  of-  employees  in  the  customs  service  for  the 
purpose  of  making  investigation  and  report  upon  this  whole  subject. 
That  commission  is  now  engaged  in  public  hearings,  at  which  all 
importers  and  dealers  and  the  public  generall}^  are  invited  to  express 
their  views;  its  report  will  soon  be  available,  and  it  is  not  considered 
desirable  to  make  any  recommendations  upon  this  subject  until  that 
report  is  at  hand. 

On  March  27,  1903,  the  Commission  passed  Act  No.  702,  regulating 
the  registration  of  Chinese  persons  in  the  Philippine  Islands  for  the 
purpose  of  carrying  into  effect  the  provisions  of  section  1  of  the  act  of 
Congress  approved  April  29,  1902,  relating  to  the  exclusion  of  Chinese 
from  the  United  States  and  its  insular  possessions.  B}^  said  Act  No. 
702  the  registration  was  intrusted  to  the  collector  of  customs  for  the 
Philippine  Islands,  and  he  was  directed  to  employ  for  that  purpose 
the  personnel  of  the  Philippine  customs  service,  the  provincial  and 
military  officers  therein  provided,  and  such  other  persons  as  might 
be  necessary.  In  accordance  with  the  provisions  of  this  law,  the 
collector  of  customs  proceeded  to  prepare  regulations  for  the  regis- 
tration of  Chinese  persons  in  the  Philippine  Archipelago,  with  forms 
of  applications  and  certificates,  and  appointed  the  necessary  registrars 
and  deputies.  Down  to  October  8,  1903,  less  than  30,000  applications 
for  registration  had  been  received  from  Chinese  persons  residing 
in  the  city  of  Manila.  It  was  contemplated  that  the  work  of  regis 
tration  would  be  completed  b}^  the  29th  dav  of  October,  1903,  but 
on  the  latter  date  it  was  found  necessar}^  to  extend  the  period  within 
which  the  registration  should  be  completed  two  months  more.  The 
number  of  Chinese  to  apply  for  registration  is  much  smaller  than  had 
been  anticipated  by  man}^  people.  The  Chinese  themselves  are  not 
favorable  to  the  registration  and  manif estl}'  prefer  to  take  their  chances 
of  subsecjui'nth^  proving  that  the}"  are  citizens  of  the  Philippine 
Islands,  having  been  born  here,  and  are  therefore  not  subject  to  reg- 
istration or  deportation,  than  to  make  the  direct  admission  required  by 
the  registration.  The  sentiment  of  the  communit}'  likewise  is  not 
favorable  to  the  discovery  of  unregistered  Chinese.  Business  men  of 
the  islands  are  generally  of  the  opinion  that  the  Chinese-exclusion  laws 
are  more  drastic  and  rigid  than  the  needs  of  the  islands  require,  and 
that  no  conditions  exist  here  demanding  the  rigid  enforcement  of  those 
laws  in  the  same  manner  in  which  they  are  enforced  in  the  United 
States.  The  collector  of  customs,  however,  has  enforced  the  laws  so 
far  as  was  practicable.  Some  evasions  have  occurred,  and  Chinese  not 
entitled  to  admission  have  in  some  instances  succeeded  in  gaining 
entrance  to  the  islands,  but  the  number  of  such  illegal  entries  is  com- 
paratively small,  and  they  present  no  question  of  large  importance. 
It  is  very  apparent  that  the  numl>er  of  Chinese  now  in  the  country  is 
not  sufficiently  large  to  constitute  any  menace  to  the  peace  or  indus- 
tries of  the  country. 


672  REPORTS    OF    THE    CIVIL    GOVERNMENT 

Some  (lilHcult  questions  have  iirisen  under  the  so-called  "contract- 
labor  laws''  of  the  rnited  States,  which  are  extended  to  the  Philippine 
Islands  by  act  of  Congress  of  March  8,  11)03.  An  expert  accountant, 
Avho  had  come  to  the  islands  for  the  purpose  of  serving-  in  one  of  the 
banks  under  a  contract  for  a  period  of  service,  was  denied  admission 
by  the  collector  of  customs  for  the  Fhilii)pine  Islands  on  the  ground 
that  he  was  a  contract  laborer  within  the  meaning  of  the  law  and  was 
not  entitled  to  admission  under  any  of  the  exceptions  stated  in  the 
law.  The  case  was  taken  to  the  supremo  court  of  the  islands  on  hal)eas 
corpus.  The  right  of  the  collector  to  exclude  him  was  assailed,  not 
only  upon  the  ground  that  ho  was  within  the  excepted  classes  and  there- 
fore entitled  to  admission,  but  also  upon  the  ground  that  under  the  act 
of  Congress  of  March  3,  1903,  the  administration  of  that  act  had  been 
placed  under  the  Department  of  Labor  and  Commerce  of  the  United 
States,  and  that  consequently  the  collector  of  customs  for  the  Philip- 
pine Islands  had  no  jurisdiction  whatever  to  admit  or  exclude  the 
accountant,  and  that  he  was,  therefore,  unlawfull}^  restraining  the 
accountant  from  his  liberty.  The  insular  supreme  court  has  decided 
the  second  question  in  favor  of  the  collector,  a  majority  of  the  court 
holding  that  while  the  act  of  Cong-ress  of  March  3,  1903,  extended  the 
provisions  of  substantive  law  therein  enacted  to  these  islands,  it  did 
not  extend  the  machinery  therein  provided  to  these  islands,  and  that, 
therefore,  the  control  of  the  whole  machiner}^  was  within  the  compe- 
tence of  the  insular  government,  which  has  intrusted  the  collector 
of  customs  with  that  duty.  The  minority  of  the  court  held  that  the 
whole  act  of  March  3,  1903,  including  the  machinery  for  its  enforce- 
ment, was  extended  to  the  Philippine  Islands,  but  that  until  the  new 
machinery  therein  provided  should  be  set  in  motion  the  officials  before 
that  time  authorized  to  perform  these  duties  and  engage  in  the  active 
performance  of  them  could  lawfully  continue  to  perform  their  duties 
and  execute  the  law.  The  result  in  either  view,  therefore,  was  that 
the  collector  was  not  acting  without  authorit}^  The  question  of  facts 
as  to  whether  the  accountant  came  within  the  expected  classes  named 
in  the  act  of  Cong-ress  the  court  has  reserved  for  further  hearing;  but 
upon  the  subject  of  the  future  construction  of  the  act  of  Congress  as 
to  the  extension  of  all  the  machinery  therein  provided  to  the  Philip- 
pine Islands,  this  government  has  great  interest.  It  is  believed  to  be 
especially  undesirable  that  the  Department  of  Labor  and  Commerce, 
or  an}^  other  department  of  the  United  States,  should  interfere  with 
the  administration  of  laws  in  the  Philippine  Islands.  Such  an  inter- 
ference would  result  in  confusion,  conflict  with  authority,  duplication 
of  officials,  and  division  of  responsibility.  Two  sets  of  officials  would 
be  at  work  under  difierent  authorities  in  the  harbors  of  the  islands 
dealing  with  incoming  vessels  and  Chinese  and  other  passengers  on 
board  and  with  matters  of  quarantine  and  customs.  The  policy  of  the 
Government  of  the  United  States  heretofore  has  been  to  make  the 
government  of  the  Philippine  Islands  responsible  for  ever}^  branch  of 
the  administration  throughout  the  whole  archipelago,  and  to  impose 
upon  it  the  obligation  of  enforcing  the  laws  and  of  furnishing  the 
appropriations  and  machinery  necessary  for  the  carrying  out  of  the 
laws.  This  has  been  true  of  the  whole  customs  service,  the  whole 
postal  service,  the  quarantine  service,  and  every  other  branch  of  the 
government.  It  is  considered  extremely  undesirable  that  that  policy 
shall  be  departed  from  and  a  new  one  inaugurated.     The  whole  gov- 


OF    THE    PHILIPPINP:    islands,   1900-1903.  673 

ernnient  reports  now  directly  to  the  Secretary  of  War,  who  likewise 
has  authority  in  the  matter  of  all  military  forces  stationed  in  the 
islands.  All  conflict  of  authority  is  thereby  avoided  and  one  central 
ruling-  power  has  tended  to  uniformity  of  action  and  the  securing  of 
the  very  best  results.  In  view  of  the  divided  opinion  of  the  insular 
supreme  court  upon  the  actual  meaning  of  the  act  of  Congress  of 
March  3,  1903,  in  this  respect,  it  is  recommended  that  the  ambiguity 
be  cleared  by  legislation  of  Congress,  and  that  Congress  be  asked  to 
declare  expressly  that  the  machinery  for  enforcing  the  exclusion  act  in 
the  Philippine  Islands  shall  be  operated  by  the  insular  authorities  as 
heretofore,  and  that  if  the  act  as  now  standing  is  not  capable  of  such 
construction,  it  be  so  amended  as  to  secure  that  result. 

Attention  is  invited  to  that  portion  of  the  report  of  the  collector  of 
customs  which  treats  of  the  coastwise  laws,  and  reads  as  follows: 

COASTWISE    LAWS. 

The  coastwise  shipping  laws  of  the  islands  have  been  for  some  time  past,  and  still 
are,  in  an  unsatisfactory  condition.  This  fact,  coupled  with  the  natural  uncertainty 
on  the  part  of  possible  investors  of  new  capital  as  to  the  date  and  form  of  permanent 
legislation  on  the  subject,  has  done  much  to  retard  the  development  of  what  may 
be  termed  "the  arteries  of  commerce  in  the  Philippines." 

Shortly  after  the  American  occupation  of  these  islands  on  July  8,  1899,  the  War 
Department  issued  tariff  circular  No.  81,  publishing  an  Executive  order,  dated  July 
3,  1899,  prescribing  the  form  and  rules  of  issuance  for  "Certificates  of  protection" 
and  the  flag  of  the  United  States  to  vessels  in  the  Philippine  Islands. 

This  order  restricted  the  right  to  engage  in  the  coastwise  trade  of  these  islands  to 
vessels  bona  fide  owned  by  a  citizen  of  the  United  States  residing  in  the  Philippine 
Islands,  or  a  native  inhabitant  upon  his  taking  the  oath  of  allegiance,  or  a  resident 
of  the  islands  who  had  become  a  citizen  thereof  by  virtue  of  the  Treaty  of  Paris. 

Under  this  order  a  number  of  private  individuals,  firms  and  corporations,  domiciled 
here  and  actually  owning  and  operating  a  considerable  proportion  of  the  available 
coasting  vessels  would  have  been  prevented  from  continuing  in  that  trade. 

So  great  was  the  exigency  requiring  that  such  vessels  should  continue  in  the 
coasting  trade  that  no  close  investigation  into  the  bona  fides  of  transfers  of  such 
vessels,  where  made  from  the  then  owners  to  citizens  of  the  United  States  or  of  the 
Philippine  Islands,  and  where  the  transferees  took  out  certificates  of  protection,  was 
deemed  wise  by  the  military  government.  To  have  excluded  vessels  obtaining 
certificates  of  protection  in  this  manner  would  have  brought  disaster  to  the  business 
of  the  islands  and  have  done  great  damage  to  tlieir  inhabitants.  The  result,  how- 
ever, of  the  leniency  with  which  the  transfers  mentioned  were  regarded  by  the 
military  authorities  is  that  many  of  the  large  coasting  vessels  now  engaged  in  trade 
under  the  flag  of  the  United  States  would  have  much  difficulty  in  establishing  by 
evidence  their  rights  to  this  privilege  under  the  terms  of  section  117  of  the  Philip- 
pine customs  administrative  act  hereinafter  quoted. 

The  Spanish  connnercial  laws  of  these  islands  regulating  the  formation  of  corpora- 
tions or  companies  are  decidedly  different  from  those  in  the  United  States,  in  that 
the  laws  here  permit  the  incorporation  of  a  body  of  foreigners  resident  in  these 
islands. 

Shortly  after  the  undersigned  assumed  (charge  of  this  bureau  over  two  years  ago, 
strict  instructions  were  issued  that  no  certificates  of  ])rotection  sfiould  be  granted  to 
any  vessel  not  bona  fide  owned  by  one  of  the  three  classes  of  individuals  mentioned 
in  the  original  Executive  order  of  July  3,  1899,  and  subse(iuently  embodied  in  sec- 
tion 117  of  tii(^  Philippine  customs  administrative  act. 

No  reason  has  since  appeared  for  dei)arting  from  those  instructions. 

The  f(jllowing  extract  from  a  special  report  previously  rendered  by  this  office 
explains  the  present  conditions  in  regard  to  the  local  coastwise  trade: 

<<*  *  *  jt  is  clear,  howcn-er,  that  whatever  subsequent  action  might  be  taken  by 
either  the  legislature  or  the  judicial  branch  of  the  Government,  the  President  intended 
to  limit  the  '  protection  and  flag  of  the  United  States'  to  such  foreign-built  ves.sels 
as  precedent  in  similar  cases,  such  as  the  Territories  of  Alaska  and  Hawaii,  showed 
him  wouM  be  the  only  vessels  to  which  ('ongress  would  grant  American  registers. 

"Viewing  the  matter  in  this  ligbt,  the  Executive  order  of  July  3,  1899,  is  very  clear 
and  exact  in  its  terms;  it  neede(l  no  liberal  interpretation  in  order  to  be  understood 
and  obeyed.     It  took  what  is  pmbably  the  only  stand  in  Uie  matter  of  granting 


674  REPORTS    OF   THE    CIVIL    GOVERNMENT 

American  registry  which  Congress  would  afhrm,  and  any  deviation  from  the  exact 
and  provident  terms  of  tliat  order  could  only  be  excused  on  the  grounds  of  a  strirtly 
military  necessity.  As  it  is,  that  order  has  been  for  over  two  years  and  is  being 
to-day 'violated  bv  what  has  been  termed  a  'broad  and  liberal  interpretation' 
thereof.  That  the  present  condition  of  trade  in  these  islands  urge  and  advise  such  a 
measure  noliody  will  deny,  but  that  the  present  situation  of  the  insular  government 
as  to  the  Philippine  coastwise  trade  is  a  safe  or  satisfactory  one  nobody  dare 
athrm. 

The  President's  order  granted  the  protection  and  flag  of  the  United  States  'on 
the  iiigh  seas  and  in  all  parts  '—in  other  words,  any  place  on  the  face  of  the  glol)e 
where  a  vessel  could  go.  Under  these  conditions  the  necessity  of  safeguarding  this 
privilege  and  restricting  it  to  owners  of  vessels  owing  allegiance  to  the  United  States 
is  only  too  api)arent.  This  was  the  precise  effect  of  a  fair  interpretation  of  the  order 
in  question.  Any  pretended  construction  by  which,  in  the  guise  of  a  corporation,  a 
body  of  persons  owing  allegiance  to  a  foreign  power  were  granted  the  protection  and 
the  tlag  of  the  United  States  completely  nuUiHed  and  derogated  this  reasonable  and 
clearly  expressed  intention." 

In  the  light  of  subsequent  experience,  however,  and  especially  in  view  of  the  evi- 
dent hesitation  which  has  existed  on  the  part  of  American  capital  to  invest  in  local 
shipping  interests  during  the  past  two  years,  it  seems  imperative  that  the  vessels 
actually  engaged  in  the  coastwise  trade  at  this  time  should  be  permitted  to  continue 
therein. 

To  this  end  the  following  statement  of  the  law  and  prevailing  conditions  is  given: 

Section  3  of  the  act  of  Congress  approved  March  8,  1902,  states  that  until  July  1, 
1904,  the  provisions  of  law  restricting  to  vessels  of  the  United  States  transportation 
of  passengers  and  merchandise  directly  or  indirectly  from  one  port  of  the  United 
States  to  another  port  of  the  United  States  shall  not  be  applicable  to  foreign  vessels 
engaging  in  trade  between  the  Philippine  Archipelago  and  the  United  States,  or 
between  ports  in  the  Philippine  Archipelago. 

The  question  of  what  action,  if  any,  will  be  taken  by  Congress  affecting  this  trade 
after  the  1st  of  next  July  is  therefore  of  vital  interest  to  ship  owners  and  agents 
both  here  and  in  certain  portions  of  the  mainland  territory. 

For  the  purpose  Of  discussion,  it  is  convenient  to  consider  the  question  in  two 
parts:  . 

(1)  The  general  or  technical  coastwise  trade,  or  rather  what  will  become  such,  in 
case  these  islands  are  made  a  great  coasting  district  of  the  United  States  after  July  1, 
1904;  and  (2)  the  purely  local  coastwise  trade— i.  e.,  between  ports  in  the  Philippine 
Islands. 

It  is  believed  that  in  all  legislation  affecting  these  two  phases  of  the  question,  they 
should  be  considered  as  separate  and  distinct,  since  the  conditions  involved  differ 
widely  and  the  effects  of  a  change  in  the  present  laws  w^ould  be  correspondingly 
varied. 

At  the  present  time  both  the  trade  between  these  islands  and  the  mainland  terri- 
tory of  the  United  States  and  the  trade  between  ports  in  these  islands  are  open  to 
the  vessels  of  the  world,  irrespective  of  flags  or  owners.  The  protection  and  flag  of 
the  United  States  is,  however,  limited  to  the  vessels  mentioned  in  section  117  of  the 
Philippine  customs  administrative  act,  which  reads  as  follows: 

"Sec.  117.  Collectors  of  customs  may  issue  a  certificate  of  protection  entitling  the 
vessel  to  which  it  is  issued  to  the  ]irotection  and  flag  of  the  United  States  in  all  ports 
and  on  the  high  seas,  if  the  vessel  is  owned  by — 

"(a)  A  citizen  of  the  United  States  residing  in  the  Philippine  Islands; 

"(b)  A  native  inhabitant  of  the  Philippine  Islands  upon  taking  the  oath  of  alle- 
giance to  the  United  States; 

"  (c)  A  resident  of  the  Philippine  Islands  before  April  11,  1899,  hitherto  a  subject 
of  Spain,  upon  abjuring  his  allegiance  to  the  crown  of  Spain  and  taking  the  oath  of 
allegiance  to  the  United  States;  "  and  to  vessels  or  other  craft  built  in  the  Philippine 
Islands  or  in  the  United  States  and  owned  by  citizens  of  the  United  States  or  by 
inhabitants  of  the  Philippine  Islands,  "which  vessels  are  engaged  in  lighterage 
or  other  exclusively  harbor  business,"  under  section  3  of  the  act  of  Congress  above 
referred  to. 

Act  No.  520  of  the  Philippine  Commission,  however,  by  its  terms  permits  strictly 
foreign  vessels  to  engage  in  the  Philippine  coastwise  trade  only  until  July  1,  1904. 

In  the  absence  of  prior  legislation,  therefore,  the  local  coastwise  trade  of  these 
islands  will  of  necessity  be  carried  on  in  the  vessels  at  present  operating  under  sec- 
tion 117  of  tlie  Philippine  customs  adminstrative  act  above  set  forth.  It  has  already 
been  shown  that  tliese  vessels  are  inadequate  to  the  present  demands  of  trade,  as 
well  as  utterly  insufiicient  to  handle  the  steadily  growing  water  commerce  of  these 
islands. 


OF   THE    PHILIPPINE    ISLANDS,   1900-1903.  675 

A  list  of  the  licensed  vessels  of  all  kinds  at  present  in  these  islands,  giving  their 
rig,  gross  tonnage,  date,  and  place  of  construction,  is  hereto  attached,  marked  '  'Appen- 
dix E." 

These  vessels  are  almost  without  exception  foreign  built.  The  largest  ones,  belong- 
ing to  the  most  important  lines,  are  owned  by  Spanish  or  British  subjects,  either 
individually  or  in  firms  or  corporations.  A  number  of  the  small  steamers  are  owned 
by  citizens  of  these  islands. 

It  will  be  admitted  without  question  that  eventually  the  coastwise  trade  of  these 
islands  should  be  carried  on  only  in  American  or  Philippine  bottoms  (including  those 
now  here  which  may  be  given  American  registry),  and  only  by  citizens  of  the 
United  States  or  Filipinos.  Just  how  soon  that  result  can  be  accomplished  will 
depend  largely  upon  the  commercial  prosperity  of  the  Philippines  and  t&e  readiness 
of  American  capital  to  come  here. 

Meanwhile  it  is  believed  that  some  comparatively  permanent  policy  and  legislation 
should  be  adopted  to  meet  the  existing  situation  and  encourage  the  investment  of 
capital  and  local  shipping. 

In  seeking  a  base  for  immediate  legislation  by  Congress  on  this  subject,  it  may  be 
safely  premised  that  no  course  should  be  adopted  which  will  place  any  additional 
burden  in  the  way  of  freights  on  Philippine  products  shipped  either  locally  or  to  the 
mainland  territory  for  some  years  to  come.  For  a  similar  reason  no  law  should  be 
passed  which  will  appreciably  increase  the  freight  rates  from  the  mainland  territory 
to  these  islands. 

Cheap  and  adequate  transportation  between  the  mainland  territory  and  these 
islands  and  between  Philippine  ports  is  vitally  necessary  to  successful  development 
here. 

At  the  present  time  the  greater  part  of  the  freight  traffic  between  the  Philippines 
and  New  York  is  carried  on  in  foreign  bottoms.  So  far  as  indications  go,  any  law 
which  prevented  the  continuance  of  that  trade  in  foreign  bottoms  until  an  equal  ton- 
nage of  cheaply  operated  American  freighters  are  actually  available  to  take  up  that 
trade  and  maintain  healthy  rate  competition  would  result  in  a  decided  increase  over 
the  present  rates  of  freight.  This  additional  burden  would  fall  upon  the  already 
weakened  resources  of  these  islands,  and  such  a  result  would  be  more  than  lament- 
able from  every  standpoint. 

The  tonnage  plying  between  these  islands  and  the  Pacific  coast  is  about  equal  to 
the  present  freight  supply,  and  no  change  in  the  present  law  seems  advisable  so  far 
as  trans-Pacific  routes  are  concerned. 

It  is  therefore  earnestly  recommended  that  the  present  laws,  so  far  as  they  permit 
foreign  bottoms  to  trade  between  these  islands  and  the  mainland  territory  of  the 
United  States,  be  not  changed  for  a  period  of  at  least  five  years  from  July  1,  1904, 
and  that  positive  legislation  to  that  effect  be  had  by  Congress  at  an  early  date. 

With  regard  to  the  vessels  at  present  operating  in  the  Philippine  coastwise  trade, 
under  the  certificate  of  protection  and  the  United  States  flag,  granted  by  section  117 
of  the  Philippine  customs  administrative  act,  hereinbefore  set  forth,  it  is  believed 
that  early  legislation  should  be  had  by  Congress,  granting  American  registry  to  such 
vessels  as  actually  possess  certificates  of  protection  on  the  date  of  the  passage  of  such 
a  law,  provided  that  said  vessels  are  bona  fide  owned  on  that  date  wholly  by — 

(1)  Citizens  of  the  United  States; 

(2)  Citizens  of  the  Philippine  Islands; 
m  Jointly  by  both; 

(4)  A  corporation  created  under  the  laws  of  any  of  the  States  of  the  United  States; 

(5)  A  corporation  or  company  duly  constituted  under  the  existing  laws  of  the  Philip- 
pine Islands,  provided  that  at  least  three-fifths  of  the  entire  stock  shall  be  at  all  times 
owned  by  citizens  of  the  United  States  or  citizens  of  the  Philippine  Islands,  or 
jointly  by  both;  and  provided,  further,  that  all  transfers  of  stock,  by  way  of  mort- 
gages or  otherwise,  shall  be  at  once  registered  in  the  books  of  the  corporation  and 
company  concerned  and  in  the  records  of  the  custom-house  nearest  the  head  office 
of  said  corporation  or  company. 

Provisions  similar  to  those  in  the  United  States  navigation  laws  should  be  made 
for  the  enrollment  of  certain  vessels  and  the  licensing  of  those  employed  only  in 
river  or  Ijay  work. 

Such  a  law  should  also  provide  for  the  granting  of  American  registry  to  vessels 
subse(}uently  entering  the  local  trade,  i)rovided  that  said  vessels  were  built  in  the 
United  States  or  the  Philipitine  Islands  and  are  owned  by  one  of  the  classes  of  persons 
or  corporations  mentioned  above. 

A  provision  in  effect  that  vessels  built  in  the  Philippine  Islands  would  be  required 
to  pay  only  one-half  of  the  regular  license  fees  and  other  maritime  cliarjrt's  would 
tend  to  encourage  the  establishment  of  shipyards  and  docking  plants,  which  are 
greatly  needed  here. 


(37(5  REPOKTS    OF    THE    CIVIL    GOVERNMENT 

To  tlie  end  that  all  trade  between  these  islands  and  the  mainland  territory  may  in 
the  conrse  of  a  few  years  be  carried  on  in  American  and  "Americanized"  bottoms, 
it  is  believed  that  the  Pacitic  army  transport  service  shoiUd  be  greatly  rednced,  if 
not  entirely  abolished,  and  that  all  Government  freight  and  passenger  traffic  should 
be  given,  under  regular  contracts,  to  commercial  lines  plying  that  course. 

A  similar  i>olicy  in  regard  to  the  interisland  army  transport  service  would  do 
much  to  assist  in  extending  the  Philippine  merchant  marine. 

These  recommendations  of  the  collector  of  customs  are  approved  so 
far  as  they  relate  to  needed  l(>o-islation  by  Congress.  While  it  is  true 
that  the  interisland  coastwise  trade  ought  to  be  carried  on  in  vessels 
owned  b}'  citizens  of  the  United  States  or  of  the  Philippine  Islands, 
and  while  such  will  undoubtedly  be  the  ultimate  condition,  yet  for  the 
immediate  present  vessels  so  owned  are  not  available,  and  if  the  exist- 
ing law  is  enforced  on  and  after  July  1,  1904,  the  Philippine  Islands 
will  be  in  the  condition  of  having  all  the  arteries  of  commerce  within 
them  immediately  cut;  the  whole  life  of  interisland  trade  would  be 
destroyed.  It  is  exceedingly  important  that  action  should  be  taken 
upon  this  matter  by  the  Congress  of  the  United  States  at  its  present 
session,  otherwise  it  is  difficult  to  see  any  method  of  maintaining  the 
interisland  business  life  after  July  1,  1904. 

On  September  9,  1903,  the  Commission  passed  Act  No.  875,  provid- 
ing for  the  collection  of  duties  on  goods,  wares,  and  merchandise 
imported  into  the  islands  for  use  of  the  insular,  provincial,  or  munici- 
pal governments.  The  primar}^  pitrpose  of  this  act  was  to  place  goods 
imported  for  the  purposes  stated  upon  a  par  with  goods  imported  by 
local  dealers  and  contractors,  so  that  such  dealers  and  contractors  might 
bid  on  fair  terms  for  the  government  business,  and  might  thus  be  able 
to  carry  larger  stocks  than  heretofore.  It  is  probable  that  this  result 
will  follow  from  the  legislation  referred  to.  The  effect  upon  actual 
insular  revenues  and  disbursements  will  not  be  important.  The  cus- 
toms revenues  will  necessarily  be  larger  than  heretofore,  but  the 
increase  will  be  paid  out  of  the  insular  treasury.  This  legislation  was 
not  intended  as  a  revenue-producing  measure. 

The  work  of  the  bureau  of  customs  has  been  well  performed  under 
the  direction  of  the  efficient  head  of  that  bureau. 

INTERNAL   REVENUE. 

The  report  of  Mr.  Albert  W.  Hastings,  acting  collector  of  internal 
revenue  for  the  Philippine  Islands,  and  city  assessor  and  collector  for 
the  city  of  Manila,  is  hereto  annexed  and  marked  "  I^xhibit  No.  7." 
It  covers  the  period  from  September  1,  1902,  to  August  31,  1903. 
During  that  period  the  collector  of  internal  revenue  had  jurisdiction 
for  collections  of  revenue  over  the  city  of  Manila,  the  island  of  Min- 
danao (with  the  exception  of  the  provinces  of  Surigao  and  Misamis), 
and  over  the  whole  of  the  Jolo  Archipelago,  internal  revenue  in  other 
provinces  being  collected  by  the  provincial  treasurers  and  devoted  to 
provincial  and  municipal  purposes  in  accordance  with  law.  In  the 
island  of  Mindanao  and  in  the  Jolo  Archipelago,  officers  of  the  Army  and 
Marine  Corps  have  performed  the  duties  of  collectors  under  detail  for 
that  purpose.  This  arrangement  was  very  unsatisf actor}',  because  the 
officers  so  detailed  were  not  relieved  from  their  military  duties  and 
were  frequently  changed  in  connection  with  the  changes  of  troops,  so 
that  it  was  difficult  for  the  collector  of  internal  revenue  to  keep  closely 
in  touch  with  them  and  to  receive  seasonable  notice  of  chansres  that 


OF   THE    PHILIPPINE    ISLANDS,   1900-1903,  677 

were  made.  The  collector  has,  however,  performed  his  duties  as 
thoroughly  and  efficientl}'  as  was  practicable  under  the  circumstances. 

Since  the  organization  of  the  Moro  province,  the  duties  of  the  col- 
lector of  internal  revenue  are  confined  mainly  to  the  city  of  Manila, 
aside  from  supplying  revenue  stamps  to  all  provincial  treasurers, 
making  forestry  collections,  and  rendering  opinions  in  matters  per- 
taining to  the  imposition  and  collection  of  industrial  and  stamp  taxes 
for  all  parts  of  the  islands. 

The  following  is  a  summar}-  of  the  internal-revenue  stamps  handled 
through  the  office  of  the  collector  of  internal  revenue  during  the  period 
stated,  values  being  given  in  Mexican  or  local  currency: 

On  hand  September  1 ,  1902 $895, 929. 07 

Received  from  printers 338,  102.  00 

Received  from  other  offices 14, 951. 95 

Total - 1,248,983.02 

Invoiced  to  office  of  city  as.sessor  and  collector 177,  059.  20 

Invoiced  to  other  offices 85,  469.  30 

Condemned  and  destroved  1)V  committee  appointed  by  acting  executive 

secretary  March  16,  1903..' 226,900.37 

Balance  on  hand  August  1, 1903 759, 554. 15 

Total - 1,248,983.02 

The  percentage  of  expenses  to  collections,  including  the  city  of 
Manila,  has  been  approximately  6  percent.  Included  in  the  expenses 
have  been  the  preparation  and  furnishing  of  internal-revenue  stamps 
for  the  city  of  Manila  and  for  the  provincial  governments  of  the 
islands,  without  charge. 

The  total  revenue  collected  in  the  island  of  Mindanao  and  the  Jolo 
Archipelago  for  the  year  was  8^:1,006,10  Mexican  and  83,319,29  United 
States  currency;  the  total  disbursement  for  the  year  in  the  same  terri- 
tory was  82,802,69  Mexican  currency  and  $1,268,32  United  States 
currency.  The  total  of  forestry  collections  during  the  same  period, 
stated  in  monev  of  the  United  States,  local  currency  being  reduced  to 
money  of  the  United  States  at  the  official  rate  of  exchange  when  col- 
lected, was  893,718.86, 

A  draft  of  a  new  internal-revenue  law  has  been  prepared  by  Com- 
missioner Ide  and  is  in  readiness  for  submission  to  the  Commission; 
but  the  Commission  has  not  yet  had  time  to  consider  the  law.  The 
draft  repeals  more  or  less  of  "the  existing  industrial  taxes  and  substi- 
tutes in  their  place  a  general  .system  of  taxation  based  largely  upon  the 
internal-revenue  system  of  the  United  States,  with  some  important 
modifications  suited  to  local  conditions,  and  modeled  in  part  upon  the 
new  system  of  internal-revenue  taxation  that  now  supplies  practically 
all  of  the  revenue  for  the  operation  of  the  Government  in  the  island  of 
l^)rt()  Kico.  If  enacted,  the  new  law  will  make  a  large  increase  in  the 
availal)le  I'evenue  of  the  insular  government  and  will  make  a  uniform 
system  throughout  all  the  islands,  not  subject  to  the  varying  rules  of 
municipal  councils.  The  law  is  considered  to  be  a  very  important 
one,  in  view  of  the  fact  that  ultimately  it  is  most  i)ro])abI(^  that  the 
tariff  harriers  l)ctween  the  United  States  and  the  rhilii)pine  Islands 
will  l)e  more  largely  broken  down  and  commercial  intercourse  be  less 
hampered  than  at  present  by  customs  duties.  But  it  is  impossible  to 
abolish  customs  duties  on  imports  coming  into  the  islands  at  present, 
because  the  insular  govennncMit  is  so  largely  dependent  upon  those 


678  REPORTS    OF   THE    CIVIL    GOVERNMENT 

duties  for  all  its  revenues.  The  new  system  ought  to  furnish  other 
sources  of  revenue  so  as  to  make  the  abolition  of  duties  in  whole  or 
in  part  more  feasible. 

FINANCIAL   CONDITION   OF   THE    rKOVINCKS    AND    MUNICIPALITIES. 

The  following  summary  will  show  the  general  financial  condition  of 
the  provincial  and  the  municipal  o-overnments.  It  does  not,  however, 
make  a  complete  statement  of  all  the  financial  resources  of  the  numic- 
ii:)al  treasuries  on  account  of  the  fact  that  certain  minor  license  taxes 
are  paid  directly  to  the  municipal  treasurers  and  do  not  appear  in  this 
statement : 

SUMMARY   SHOWING    FINANCIAL   CONDITION    OF   PROVINCES. 

Province  of  Ahra  (organized  August  19,  1901). — Balance  on  hand 
July  1,  1902,  $4,157.59  U.  S.  currency;  provincial  and  municipal 
taxes  collected,  $6,501.96  U.  S.  currency  and  $17,1:02.58  Mexican 
currency;  pajanents  from  insular  treasury  by  warrant,  $13,556.96 
Mexican  currencv,  of  which  sum  $12,550  was  insular  loans  and  the 
balance  refunds;  "balance  in  the  treasury  June  30,  1903,  $362.08  U.  S. 
currenc}'  and  $6,118.60  Mexican  currenc3^ 

Alhay  (organized  April  26,  1901). — Balance  on  hand  July  1,  1902, 
$24,929.93  U.  S.  currenc}';  provincial  and  municipal  taxes  collected, 
$53,280.75  U.  S.  currency  and  $212,300.80  Mexican  currency;  refunds 
by  warrant  from  insular  treasury,  $29.77  U.  S.  currency  and  $2,685.22 
Mexican  currency;  balance  in  the  treasury  June  30,  1903,  $3,154.46 
U.  S.  currency  and  $4,782.15  Mexican  currency. 

Ainhos  Camarmes  (organized  April  27,  1901). — Balance  in  treasury- 
July  1,  1902,  $33,900.83  U.  S.  currency;  provincial  and  municipal 
taxes  collected,  $15,290.99  U.  S.  currency  and  $104,896.23  Mexican 
currency;  refunds  from  insular  treasury  by  warrant,  $41.90  U.  S.  cur- 
rency and  $16,520.94  Mexican  currency;  balance  in  the  treasury  June 
30,  1903,  $1,857.34  U.  S.  currency  and  $28,031.40  Mexican  currency. 

Antique  (organized  April  13,  1901). — The  office  of  treasurer  was 
consolidated  with  that  of  supervisor  February  10,  1903.  Balance  on 
hand  July  1,  1902,  $5,311.42  U.  S.  currency;  provincial  and  municipal 
taxes  collected,  $14,842.30  U.  S.  currency  and  $32,647.11  Mexican 
currency;  receipts  by  warrant  from  insular  treasury,  $94.38  U.  S. 
currency  and  $12,507.01  Mexican  currenc},  of  which  sum  $12,250  was 
an  insular  loan,  the  balance  being  refunds;  balance  in  the  treasury 
Juno  30,  1903,  $139.15  U.  S.  currency  and  $6,024.08  Mexican  currency. 

Bataan  (organized  March  2,  1901). — Balance  in  treasury  July  1, 
1902,  $6,151.42  U.  S.  currenc}^;  provincial  and  municipal  taxes  col- 
lected, $6,029.79  U.  S.  currency  and  $29,390.98  Mexican  currency; 
refunds  from  insular  treasury  by  warrant,  $6,468.35  Mexican  currency, 
balance  in  the  treasury  June  30,  1903,  $J  58. 59  U.  S.  currency  and 
$3,319.06  Mexican  currency. 

BatangciH  (organized  May  2,  1901). — Balance  on  hand  July  1,  1902, 
$12,216.64  U.  S.  currency;  provincial  and  municipal  taxes  collected, 
$34,476.93  U.  S.  currency  and  $63,263.99  Mexican  currency;  receipts 
by  warrant  from  insular  treasury,  $10,034.58  U.  S.  currency  and 
$38,945.48  Mexican  currenc}^  of  which  sums  $10,000  U.  S.  currency 
and  $38,250  Mexican  currency  were  insular  loans,  the  balance  being 


OF   THE    PHILIPPINE    ISLANDS,   1900-1903.  679 

refunds;  balance  in  the  treasury  June  30,  1903,  $4,183.47  U.  S.  cur- 
rency and  132,961.56  Mexican  currency.  Owing  to  the  depressed 
condition  of  agriculture  due  to  war,  rinderpest,  cholera,  and  locusts 
this  province  was  exempted  from  payment  of  land  taxes  for  1902  by 
Act  No.  4.57,  and  by  Act  No.  907  the  payment  of  the  1903  land  taxes 
was  postponed  until  January  1,  1904. 

Benguet  (organized  November  23,  1900).— This  province  is  supported 
entirely  by  insular  appropriations.  Balance  in  the  treasury  July  1, 
1902,  |l,884.88  U.  S.  currency;  received  by  warrant  from  insular 
treasury,  $25,604.23  Mexican  currency;  balance  in  the  treasury  June 
30,  1903,  $5,305.88  Mexican  currency. 

Bohol  (organized  April  20,  1901).— Balance  in  treasury  July  1,1902, 
$23,072.17  U.  S.  currency;  provincial  and  municipal  taxes  collected, 
$15,280.62  U.  S.  currency  and  $80,589.50  Mexican  currency;  refunds 
by  warrant  from  insular  treasury,  $2,649.64  Mexican  currency;  bal- 
ance in  the  treasury  June  30,  1903,  $7,172.02  U.  S.  currency  and 
$11,402.89  Mexican  currency. 

Bulacan  (organized  February  27,  1901).— Balance  in  the  treasury 
July  1,  1902,  $17,982.14  U.  S.  currency;  provincial  and  municipal 
taxes  collected,  $52,464.21  U.  8.  currency  and  $113,596.66  Mexican 
currency;  receipts  by  warrant  from  the  insular  treasury,  $5,319.20 
U.  S.  currency  and  $5,137.34  Mexican  currency,  $5,000  U.  S.  cur- 
rency being  an  insular  loan  and  the  balance  refunds;  balance  in  the 
treas^ury  June  30,  1903,  $1,726.44  U.  S.  currency  and  $22,291.95 
Mexican  currency. 

Cagayan  (organized  September  1,  1901).— Balance  in  the  treasury 
July  1,  1902,  $34,142.49  U.  S.  currency;  provincial  and  municipal 
taxes  collected,  $46,707.32  U.  S.  currency  and  $98,033.98  Mexican 
currency;  refunds  by  warrant  from  insular  treasury,  $8,462.94  Mexi- 
can currency;  balance  in  the  treasury  June  30,  1903,  $10,135.67  U.  S. 
currency  and  $43,539.54  Mexican  currency. 

Cap!^^  (organized  April  15,  1901).— Office  of  the  treasurer  was  con- 
solidated with  that  of  supervisor  February  10,  1903.  Balance  on 
hand  July  1,  1902,  $19,401.73  U.  S.  currency;  provincial  and  munici- 
pal taxes^ collected,  $22,685.44  U.  S.  currency  and  $65,396.72  Mexican 
currency;  refunds  by  warrant  from  insular  treasury,  $7.70  U.  S. 
currency  and  $1,131.48  Mexican  currency;  balance  in  the  treasury 
June  30,  1903,  $85.83  U.  S.  currency  and  $3,263.24  Mexican  currency. 
Cavite  (organized  June  11,  1901).— Balance  in  the  treasury  July  1, 
1902,  $13,131.82  U.  S.  currency;  provincial  and  municipal  taxes  col- 
lected, $44,851.97  U.  S.  currency  and  $80,609.89  Mexican  currency; 
receipts  by  warrants  from  the  insular  treasury,  $66.51  U.  S.  currency 
and  $50,639.31  Mexican  currency,  of  which  sums  $50,000  Mexican 
currency  was  an  insular  loan  and  the  balance  refunds;  balance  in  the 
treasury  June  30,  1903,  $6,506.74  U.  S.  currency  and  $37,589.66  Mex- 
ican currency. 

Cehu  (organized  April  18,  1901).— Balance  in  the  treasury  July  1, 
1902,  $30,9sl.04  U.  S.  currency;  provincial  and  nuuiicipal  receipts, 
$74,135.45  U.  S.  currency  and  $235,580.05  Mexican  currency;  refunds 
by  w^arrant  from  insular  treasury,  $4,338.09  Mexican  currency;  bal- 
ance in  the  treasury  June  30,  1903,  $7,156.60  U.  S.  currency  and 
$32,908.42  Mexican  currency. 

IlocoH  Norte  (organized  September  1, 1901).— Balance  in  the  treasury 
July  1,   1902,  $12,217.57  U.  S.   currency;  provincial  and  municipal 


680  REPORTS    OB'   THE    CIVIL    GOVERNMENT 

taxes  col  looted.  i!^L>0, 717.  DC)  U.  8.  ourrenoy  and  $ll-i,(Ui).  32  Mexican 
ourrenov;  refuiKls  by  warrant  from  insular  treasury,  $4.23  U.  S.  cur- 
rency and  $3,-1:24.21)  Mexican  currency;  balance  in  the  treasury  June 
30,  11)03,  §2,344.48  U.  S.  currency  and  $35,525.27  Mexican  currency. 

Jlocos  Sur  (oroanized  September  1,  1901). — Balance  in  the  treasury 
Jul}'^  1,  1002,  $14,407.36  U.  S.  currency;  provincial  and  municipal 
taxes  collected,  $44,776.82  U.  S.  currency  and  $134,089.53  Mexican 
currenc}^;  refunds  by  warrant  from  insular  treasury,  $199.39  U.  8. 
currency  and  $2,(il4.64  Mexican  currenc}^;  balance  in  the  treasury 
June  3(»',  1903,  $902.58  U.  8.  currency  and  $19,099.32  Mexican  currency. 

IloUo  (organized  April  11,  1901). — Balance  in  the  treasury  July  1, 

1902,  $30,018.05  U.  8.  currency;  provincial  and  municipal  taxes  col- 
lected, $59,504.83  U.  8.  currency  and  $244,721.25  Mexican  currency; 
refunds  by  warrant  from  the  insular  treasury,  $921.16  U.  8.  currency 
and  $22,350.74  Mexican  currency;  balance  in  the  treasury  June  30, 

1903,  $2,754.19  U.  8.  currency  and  $14,090.01  Mexican  currency. 
Isahela  (organized  September  10,  1901). — Balance  in  the  treasury 

July  1, 1902,  $9,518.29  U.  8.  currency;  provincial  and  municipal  taxes 
collected,  $16,400  U.  8.  currency  and  $50,652.26  Mexican  currency; 
refunds  by  warrant  from  insular  treasury,  $7,340.38  Mexican  currency; 
balance  in  treasury  June  30,  1903,  $667.92  U.  8.  currency  and  $8,992.54 
Mexican  currency. 

Layuna  (organized  July  1,  1902). — Transfer  from  collector  of  inter- 
nal revenue,  Laguna  Proyince,  to  provincial  treasurer,  $3,941.89  U.  S. 
currency;  provincial  and  municipal  taxes  collected,  $14,817.70  U.  8. 
currency  and  $72,386.51  Mexican  currenc}^;  refunds  by  warrants  from 
insular  treasury,  $10,213.70  U.  8.  currency  and  $1,553.27  Mexican 
currency;  balance  in  the  treasury  June  30,  1903,  $12.30  U.  8.  cur- 
rency and  $20,498.02  Mexican  currency.  On  account  of  the  distressed 
condition  of  the  people  of  Laguna  they  were  exempted  from  payment 
of  the  1902  land  tax,  and  b}^  Executive  Order  No.  78  of  September  8, 
1903,  the  time  of  payment  without  penalty  of  the  1903  land  tax  was 
extended  to  February  1,  1904. 

LejMnto-Bontoc  (organized  May  28,  1902). — This  province  is  almost 
entirely  supported  by  appropriations  from  the  insular  treasury.  Pro- 
vincial and  municipal  taxes  collected,  $267.61  U.  8.  currency  and 
$1,742.23  Mexican  currency;  receipts  by  warrant  from  the  insular 
treasury,  $6,815.30  U.  8.  currency  and  $44,335.98  Mexican  currency; 
balance  in  the  treasurj^  June  30,  1903,  $12,410.20  Mexican  currency. 

Leyte  (organized  April  22,  1901). — Balance  in  the  treasury  July  1, 
1902,  $38,834.76  U.  8.  currency;  provincial  and  municipal  taxes  col- 
lected, $40,094.33  U.  8.  currency  and  $227,231.25  Mexican  currency; 
refunds  by  warrant  from  insular  treasury,  $110.87  U.  8.  currency  and 
$10,983.20  Mexican  currency;  balance  in  the  treasury  June  30,  1903, 
$98.75  U.  8.  currency  and  $42,969.07  Mexican  currency. 

Marinduqne  (organized  May  1,  1901). — Island  of  Mindoro  added 
June  23, 1902.  Abolished  as  a  separate  proyince,  the  island  of  Marin- 
duqne being  attached  to  Tayabas  Province  and  the  island  of  Mindoro 
being  organized  into  a  separate  proyince  November  10,  1902.  Bal- 
ance in  the  treasury  July  1,  1902,  $3,537.04  U.  8.  currency;  provin- 
cial and  municipal  taxes  collected  to  November  10,  1902,  $8,352.68 
U.  8.  currency  and  $2,166.79  Mexican  currency;  receipts  by  warrant 
from  insular  treasury  (being  insular  appropriations  for  general  ex- 
penses of  the  province),  $17,572.67  Mexican  currency;  transferred  to 


OB^    THE    PHILIPPINE    ISLANDS,   1900-1903.  681 

treasurer  of  Mindoro  Province,  $69.20  U.  S.  currenc}^  and  $1,887.65 
Mexican  currency;  transferred  to  the  treasurer  of  Tayabas  Province, 
$254. -il  LJ.  S.  currencv  and  $22  Mexican  currency. 

Masbate  (organized  March  18,  1901).— Balance  in  the  treasury  July 
1,  1902,  $12,876.86  U.  S.  currency;  provincial  and  municipal  taxes 
collected,  $5,771.91  U.  S.  currency  and  $22,608.17  Mexican  currency; 
refunds  by  warrant  from  the  insular  treasury,  $13,882.06  Mexican 
currency;  balance  in  the  treasury  June  30,  1903,  $61.47  U.  S.  cur- 
rencv and  $4,771.72  Mexican  currency. 

Mindoro  (organized  November  10, 1902).— Transferred  to  provincial 
treasurer  of  Mindoro  upon  separation  from  province  of  Marinduque, 
$69.20  U.  S.  currency  and  $1,887.65  Mexican  currency;  provincial 
and  municipal  taxes  collected,  $638.50  U.  S.  currency  and  $18,859 
Mexican  currency;  receipts  by  warrant  from  the  insular  treasury. 


.53  U.  S.  currency  and  $44,102.41  Mexican  currency,  of  which  sums 
lexican  currency  was  an  insular  loan,  $34,725  M( 
rency  was  appropriated  from  the  insular  treasury  for  general  provin- 


cur 


cial  expenses,  $130  Mexican  currency  was  a  gift  to  non- Christian 
tribes,  and  the  balance  refunds;  balance  in  the  treasury  June  30, 
1903,  $1.40  U.  S.  currency  and  $4,791.02  Mexican  currency.  Janu- 
ary 1,  1904,  was  fixed  by  the  act  organizing  the  province  as  the  date 
when  the  1903  land  tax  should  become  delinquent. 

Misamis  (organized  May  15,  1901).— The  office  of  the  treasurer  was 
consolidated  with  that  of  the  supervisor  February  10,  1903.  Balance 
in  the  treasury  July  1,  1902,  $10,495.70  U.  S.  currency;  provincial 
andmunicipal  taxes  collected,  $18,918.94  U.  S.  currency  and  $70,467.96 
Mexican  currency;  refunds  by  warrant  from  the  insular  treasury, 
$33.79  U.  S.  currency  and  $7,959.73  Mexican  currencv;  balance  in  the 
treasury  June  30,  1903,  $845.23  U.  S.  currency  and  $9,770.52  Mexi- 
can currency. 

Wueva  Ecija  (organized  June  11,  1901).— Balance  in  the  treasury 
July  1,  1902,  $6,730.37  U.  S.  currency;  provincial  and  municpal  taxes 
collected,  $23,902.45  U.  S.  currency  and  $54,853.80  Mexican  currency; 
receipts  by  warrant  from  the  insular  treasury,  $3,124.05  U.  S.  cur- 
rency and  $21,479.89  Mexican  currency,  $3,000  U.  S.  currency  and 
$15,300  Mexican  currency  of  which  sums  being  insular  loans;  balance 
in  the  treasury  June  30,  1903,  $2,349.19  U.  S.  currency  and  $16,183.15 
Mexican  currenc3^ 

Nueva  Vizcaya  (organized  January  28, 1902).— Balance  in  the  treas- 
ury July  1,  1902,  $2,193.82  U.  S.  currency;  provincial  and  municipal 
taxes  collected,  $13,369.40  Mexican  currency;  receipts  by  warrant 
from  the  insular  treasury  (insular  appropriations  for  the  general 
expenses  of  the  province),  $34,576.41  Mexican  currency;  balance  in 
the  treasury  June  30,  1903,  $9,467.70  Mexican  currency. 

Occidental  Negros  (organized  April  20,  1901).— Balance  in  the  treas- 
ury July  1,  1902,  $51,086.72  U.  S.  currency;  provincial  and  municipal 
taxes  collected,  $46,389.78  U.  S.  currency  and  $111,763.58  Mexican 
currency;  refunds  by  warrant  from  the  insular  treasury,  $475.13 
U.  S.  currency  and  $8,653.42  Mexican  currencv;  balance  in  the  treas- 
ury June  30,  1903,  $745.86  U.  S.  currency  and  $5,284.33  Mexican 
currencv. 

Oriental  Negros  (organized  May  1, 1901).— The  office  of  the  treasurer 
was  consolidated  with  that  of  the  supervisor  May  26,  1903.  Balance 
in  the  treasury  July  1,  1902,  $20,889.38  U.  S.  currency;  provincial 


682  KEPOETS    OF    THE    CIVIL    GOVERNMENT 

and  municipal  taxo.>^  colloctod,  i^84:,382.91  U.  S.  currency  and$64,G09.62 
Mexican  currency;  refunds  by  warrant  from  the  insidar  treasury, 
$1,820.55)  Mexican  currency;  balance  in  the  treasury  June  30,  1903, 
$95i  U.  S.  currenc}"  and  $14,67(5.4:0  Mexican  currency. 

Pamj>ang(i  (organized  February  13,  1901). — Balance  on  hand  July 
1,  1902,  $58,012.18  U.  S.  currenc}'-;  provincial  and  municipal  taxes 
collected,  $48,571.50  U.  S.  currency  and  $146,062.37  Mexican  currency; 
balance  in  the  treasury  June  30,  1903,  $21,890.01  U.  S.  currency  and 
$59,386.51  Mexican  currency. 

Pangashian  (org-anized  February  18,  1901). — Balance  in  the  treasury 
July  i,  1902,  $30,705.60  U.  S.  currency;  provincial  and  municipal 
taxes  collected,  $66,072.79  U.  S.  currency  and  $285,350.83  Mexican 
currenc}^;  refunds  by  warrant  from  the  insular  treasury,  $323.97  U.  S. 
currenc}^  and  $3,879.36  Mexican  currency;  balance  in  the  treasury 
June  30,  1903,  $176.26  U.  S.  currency  and  $30,577.48  Mexican 
currency. 

Paragua  (organized  June  23,  1902). — Provincial  and  municipal  taxes 
collected,  $623.41  U.  S.  currency  and  $13,405.47  Mexican  currency; 
receipts  by  warrant  from  the  insular  treasury  $14,981.90  Mexican 
currency,  of  which  sum  $13,350  Mexican  currency  was  insular  loans 
and  the  balance  refunds;  balance  in  the  treasury  June  30,  1903, 
$2,262.46  Mexican  currency. 

Pi  sal  (organized  June  11,  1901). — Balance  on  hand  July  1,  1902, 
$29,300.14  U.  8.  currency;  provincial  and  municipal  taxes  collected, 
$27,616.96  U,  S.  currency  and  $55,925,62  Mexican  currency;  receipts 
by  warrant  from  the  insular  treasury,  $298.47  U.  S.  currency^  and 
$7,188.25  Mexican  currency,  of  which  sums  $2,600  Mexican  currency 
was  an  insular  loan  and  the  balance  refunds.  Balance  in  the  treasury 
June  30,  1903,  $1,398.24  U.  S.  currency  and  $],609.64  Mexican  cur- 
rency. 

Pomhlon  (organized  March  16, 1901). — Balance  in  the  treasur}^  July 
1,  1902,  $2,835.62  U.  S.  currency;  provincial  and  municipal  taxes 
collected,  $3,529.83  U.  S.  currency  and  $29,681.59  Mexican  currency; 
refunds  by  warrant  from  insular  treasury",  $50.54  U.  S.  currency  and 
$2,928.19  Mexican  currency.  Balance  in  the  treasury  June  30,  1903, 
$78.11  U.  S.  currency  and  $2,613.49  Mexican  currency. 

Samar  (organized  June  17,  1902). — Provincial  and  municipal  taxes 
collected,  $25,069.87  U.  S.  currency  and  $168,145  Mexican  currency; 
receipts  by  warrant  from  the  insular  treasury,  $2,553.19  U.  S.  cur- 
rency and  $35,142.16  Mexican  currency,  of  which  sums  $2,553.19  U.  S. 
currency  and  $25,000  Mexican  currency  were  insular  loans  and  the 
balance  refunds.  Balance  in  the  treasury  June  30,  1903,  $1,166.81 
U.  S.  currency  and  $94,209.54  Mexican  currency.  The  act  organizing 
the  province  of  Samar  exempted  the  people  thereof  from  paying  the 
1902  land  tax,  and  the  1903  land  tax  did  not  fall  due  until  after  the 
close  of  the  fiscal  year. 

Sorsogon  (organized  April  30,  1901). — Balance  in  the  treasury  July 
1,  1902,  $23,281.13  U.  8.  currency;  provincial  and  municipal  taxes 
collected,  $35,422.42  U.  8.  currency  and  $114,298.97  Mexican  cur- 
rency; refunds  by  warrant  from  insular  treasury,  $105.63  U.  S.  cur- 
rency and  $8,459.47  Mexican  currency.  Balance  in  the  treasury  June 
30,  1903,  $8,443.10  U.  8.  currency  and  $1,359.64  Mexican  currency. 

Surigao  (organized  May  15,  1901). — Balance  in  the  treasury  July  1, 
1902,  $9,888.45  U.  8.  currency;  provincial  and  municipal  taxes  col- 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  683 

lected,  $8,171.59  U.  S.  currency  and  146,282.31  Mexican  currency; 
refunds  by  warrant  from  insular  treasury,  $1,296.71  Mexican  currency. 
Balance  in  the  treasury  June  30,  1903,  $66.49  U.  S.  currency  and 
$2,702.64  Mexican  currency. 

Tarlac  (organized  February  18, 1901).— Balance  in  the  treasury  July 
1, 1902,  $18,175.43  U.  S.  currency;  provincial  and  municipal  taxes  col- 
lected, $33,649.79  U.  S.  currency  and  $101,621.41  Mexican  currency; 
refunds  by  warrant  from  the  insular  treasury,  $13.45  U.  S.  currency 
and  $8,935.76  Mexican  currency.  Balance  in  the  treasury  June  30, 
1903,  $10,156.56  U.  S.  currency  and  $27,105.25  Mexican  currency. 

Tayabas  (organized  March  12,  1901). — Balance  in  the  treasury  July 
1, 1902,  $26,612.60  U.  S.  currency;  provincial  and  municipal  taxes  col- 
lected, $65,491.18  U.  S.  currency  and  $148,002.85  Mexican  currency; 
refunds  by  warrant  from  the  insular  treasury,  $14.43  U.  S.  currency 
and  $38,515.20  Mexican  currency.  Balance  in  the  treasury  June  30, 
1903,  $9,165.20  U.  S.  currency  and  $37,345.20  Mexican  currency. 

Union  (organized  August  15, 1901). — Balance  on  hand  July  1,  1902, 
$11,286.62  U.  S.  currency;  provincial  and  municipal  taxes  collected, 
$14,608.73  U.  S.  currency  and  $56,598.54  Mexican  currency;  receipts 
by  warrant  from  the  insular  treasury,  $75.08  U.  S.  currency  and 
$18,209.05  Mexican  currency,  of  which  sums  $15,960  Mexican  cur- 
rency was  an  insular  loan  and  the  balance  refunds.  Balance  in  the 
treasury  at  the  close  of  the  liscal  year,  $2,863.34  Mexican  currency. 

Zamhales  (organized  August  28,  1901).— The  office  of  the  treasurer 
was  consolidated  with  that  of  the  supervisor  February  10,  1903.  Bal- 
ance on  hand  July  1,  1902,  $11,428.64  U.  S.  currency;  provincial  and 
municipal  taxes  collected,  $9,346.52  U.  S.  currency  and  $54,433.38 
Mexican  currency;  refunds  by  warrant  from  the  insular  treasury,  $5.49 
U.  S.  currency  and  $6,951. 37 "Mexican  currency.  Balance  in  the  treas- 
ury at  the  close  of  the  fiscal  year,  $826.41  U.  S.  currency  and  $2,820.96 
Mexican  currency. 

The  balances  in  the  provincial  treasuries  at  the  close  of  the  fiscal  year 
shown  in  the  foregoing  statement  relate  solely  to  provincial  funds, 
municipal  funds  on  deposit  with  provincial  treasurers  and  amounts  due 
to  municipalities  not  being  taken  into  consideration. 

The  report  of  the  auditor  for  the  fiscal  year  1903  shows  that  the 
total  collections  in  the  provinces  for  provincial  and  municipal  purposes 
aggregated  $1,078,259.85  U.  S.  currency  and  $3,601,060.50  Mexican 
currency , aside  from  the  aggregate  of  advances  from  the  insular  treasury 
as  refunds,  loans,  and  direct  appropriations,  amounting  to  $40,937.44 
U.  S.  currency  and  $581,149.69  Mexican  currency.  At  the  close  of 
the  fiscal  year  there  were  in  the  provincial  treasuries  cash  balances  of 
provincial  funds  aggregating  $107,890.60  U.  S.  currency  and  $745,046 
Mexican  currency,  and  cash  balances  due  the  various  numicipalities 
aggregating   $17"  834.97   U.   S.   currency   and    $185,109.66    Mexican 

currency. 

Henry  C.  Ide, 

Secretary  of  Finance  and  Justice. 

The  Philippine  Commission.. 


SECOND   ANNUAL   REPORT 

OF   THE 

SECRETARY  OF  PUBLIC   INSTRUCTION. 


Manila,  P.  1.,  November  15,  1903. 
The  Philippine  Commission: 

The  secretary  of  public  instruction  begs  leave  to  submit  to  the  hon- 
orable the  Philippine  Commission,  the  second  annual  report  of  the 
work  accomplished  during  the  year  ending  October  15,  1903,  unless 
otherwise  stated,  by  those  bureaus  of  the  insular  government  under 
the  executive  control  of  the  department  of  public  instruction. 

PUBLIC   instruction   UNDER   SPANISH    RULE. 

The  history  of  the  development  of  education  in  the  Philippines  is 
not  at  all  uninteresting  to  the  investigator  if  he  enters  upon  its  study 
with  an  impartial  mind  and  a  disposition  to  judge  the  results  achieved 
by  contemporaneous  rather  than  present  standards.  It  has  been  con- 
tended that  the  Filipino  people  had  some  educational  advancement  long 
before  the  first  Spaniard  set  his  foot  in  the  Archipelago,  but  the  proofs 
adduced  to  justify  this  conclusion  rather  prove  the  existence  of  relics 
of  a  decadent  or  dead  civilization  than  the  survival  6f  a  living  and  pro- 
gressive one.  Some  of  the  tribes  may  have  had  alphabets,  and  here 
and  there  among  them  individuals  might  be  found  who  could  read  and 
write,  but  the  assertion  that  any  of  the  peoples  of  the  islands  had 
advanced  so  far  as  to  develop  a  literature  is  not  sustained  by  any  con- 
vincing evidence.  If  a  literature,  even  of  the  simplest  or  plainest  kind, 
ever  existed  in  the  Philippines  prior  to  the  advent  of  the  Spanish,  not  a 
vestige  of  it  now  survives,  and  it  is  doubtful  if  an  alphabet  was  exten- 
sively known  or  utilized  by  any  of  the  Filipino  tribes  except  the  Moros. 
Among  the  Moros  the  Arabic  alphabet  was  known  and  used  from  a  time 
proba})ly  contemporaneous  with  their  advent,  and  it  is  possible  that 
their  piratical  invasions  and  settlements,  having  communicated  to  the 
gentler  tribes  of  Luzon  and  the  Visayassome  information  that  thoughts 
and  ideas  could  be  conveyed  by  an  orderly  arrangement  of  conventional 
signs,  gave  rise  to  the  tradition  of  an  early  literary  advancement  out  of 
all  proportion  to  the  real  state  of  the  case.  Writings  may  have  existed 
at  the  time  of  the  Spanish  invasion,  but  in  all  probability  they  were  of 
Moro  origin,  and  could  hardly  be  called  literary  productions  if  the  Moro 
documents  extant  are  to  bi;  considered  as  fair  samples  of  the  writings 
of  more  primitive  times.  From  all  the  evidence  at  hand  it  seems  no 
more  than  just  to  conclude  that  learning  made  no  real  progress  among 
the  peoples  of  the  Archipelago  until  after  Spanish  occupation,  and  that 
23181—04 44  685 


080  KEPOKTS    OF    THK    CIVIL    GOVERNMENT 

tho  tirst  Spanish  cxplorcv.s  encountered  on  their  arrival  not  the  begin- 
ning" of  a  new  inteHectual  advancement,  but  at  most  the  inert  remnants 
of  a  remote  civilization  of  which  the  Filipinos  may  once  have  formed  a 
part. 

The  lirst  expeditions  sent  out  b}^  Spain  to  the  Philippine  Islands,  sub- 
sequent to  their  discovery  by  Magellan  in  1521,  evidently  liad  no  other 
object  in  view  than  tho  exploitation  of  the  islands,  and  were  moved  by  no 
purpose  benehcial  to  the  inhabitants  of  the  newly-discovered  territory. 
In  fact,  they  seem  to  have  been  inspired  by  no  higher  motive  than  gain 
and  jiggrandizement,  and  it  is  consequently  not  hard  to  understand  how 
the  first  hardy  adventurers  of  Spain  speedil}'^  lost  the  confidence  and  good 
will  of  tho  people,  w^hich  had  been  temporaril}^  gained  by  gifts  of  little 
price  and  specious  promises  of  no  higher  value.  The  conflicts  which 
soon  arose  between  the  strangers  and  many  of  the  chiefs  united  the 
various  tribes  against  the  common  enem}^  and  Spain's  first  attempts 
to  colonize  the  Philippines  resulted  in  miserable  failures. 

In  this  contingency,  Philip  II,  King  of  Spain,  had  recourse  to  the 
influence  of  religion,  which  up  to  that  time  had  never  failed  the  country 
in  its  plans  of  spiritual  conquest  and  colonization.  Urdaneta  was  called 
from  his  convent  to  take  joint  command  with  Legaspi  of  the  fourth 
expedition  to  the  Philippines,  and  large  powers  were  given  to  him 
and  the  missionaries  who  accompanied  him  in  dealing  with  the  people. 
Fair  treatment  and  the  salutary  restraint  of  Urdaneta  on  the  excesses 
of  the  soldiery  soon  gained  for  the  newcomers  a  place  in  the  afl'ec- 
tions  of  the  inhabitants,  which  quickly  produced  an  accord  advan- 
tageous alike  to  Spain  and  the  dwellers  in  her  new  discoveries.  From 
tho  very  moment  of  their  arrival,  the  missionaries,  animated  by  the 
spirit  of  Christian  zeal,  sought  to  impress  upon  their  new  charges  the 
truths  of  Christianity  and  to  wean  them  from  a  fetich  worship  which 
hardly  rose  to  the  dignity  of  a  religion.  The  bells,  the  lights,  the 
touching  chants  of  the  church,  the  rich  robes  of  the  priestly  service, 
the  solemn  and  dignified  demeanor  of  the  celebrant,  the  rough  soldiery 
that  bent  the  knee  in  homage  to  the  cross,  and  the  pathetic  history  of 
the  God-Man  all  appealed  to  the  simple  people  of  the  Philippines. 
Their  predispositions  and  emotions  were  favorable  to  the  Christian 
cult,  but,  after  all,  nothing  more  than  faith  by  impression  had  been 
created,  and  in  order  to  produce  faith  by  conviction  a  deeper  knowl- 
edge of  the  new  religion  was  required.  It  was  necessary,  therefore, 
to  give  some  history  of  its  foundation,  of  its  beliefs  and  the  reasons 
for  them,  of  its  m3^steries,  of  its  forms  of  worship,  of  the  sacraments 
and  their  foundation,  of  the  life  and  works  of  the  holy  men  who  died 
in  the  faith,  and  of  the  thousand  and  one  things  w^hich  go  to  make  up 
the  hold  of  religion  on  the  souls  of  men,  whether  civilized  or  savage. 
To  do  this  it  was  necessary  to  instruct  native  catechists,  and  to  teach 
them  to  read  and  understand  the  catechism,  that  they  in  their  turn 
might  aid  in  spreading  the  light  among  their  own  people.  This  was 
the  first  real  beginning  of  education  in  the  Philippine  Islands.  At  this 
period  education  had  not  reached  among  European  peoples  the  impor- 
tance it  has  now,  and,  while  there  were  great  universities  in  Spain,  and 
the  monastic  orders  were  at  once  the  source  and  refuge  of  instruction, 
it  could  not  be  said  that  even  in  Spain  any  considerable  portion  of  the 
community,  high  or  low,  understood  how  to  read  or  write.  The  mis- 
sionaries, therefore,  had  no  idea  at  first  of  creating  in  the  Far  East  an 
educated  and  refined  people.     Their  object  was  to  make  a  good,  not 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  687 

a  learned,  people,  and  consequently  only  so  much  instruction  was 
imparted  as  was  necessar}^  to  aid  them  in  their  work  and  to  accomplish 
the  purpose  they  had  in  view.  Only  such  schools  were  established  as 
the  exigencies  of  religious  instruction  required,  and  no  attempt  was 
made  to  found  schools  of  a  more  pretentious  character  until  1585,  when 
Philip  II  ordered  that  a  college  should  be  established,  under  the  direc- 
tion of  the  Jesuits,  for  the  instruction  of  the  Spanish  children  of 
Manila  in  morals  and  Latin.  The  college  so  ordered  to  be  founded 
was  called  St.  Ignatius,  but-was  not  opened  for  the  reception  of  students 
until  1595.  The  nimiber  of  Spanish  children  who  attended  was  small, 
and  the  purpose  of  the  foundation  was  soon  broadened  so  as  to  admit 
native  children  to  the  advantages  extended  to  those  of  Spanish 
parentage. 

Pursuing  their  policy  of  keeping  pace  with  the  advancement  of  the 
students,  the  Jesuits  added  to  the  curriculum  in  1601  a  course  of  phi- 
losophy, and  four  years  later  the  study  of  scholastic  theology.  The 
progress  of  this  institution  was  so  great  that  in  1621  it  was  raised  to 
the  grade  of  a  pontifical  university,  and  in  1653  the  full  dignit}^  of  a 
royal  university  was  conferred  upon  it.  The  University  of  St.  Igna- 
tius continued  in  existence  until  May  IT,  1768,  when,  the  Jesuits  hav- 
ing been  expelled  l^v  royal  decree  of  Charles  III,  the  institution  ceased 
to  exist  and  the  building  and  furniture  became  the  property  of  the 
state. 

In  the  same  year  in  which  he  directed  the  establishment  of  the  Col- 
lege of  St.  Ignatius,  Philip  II  ordered  the  founding  of  a  college  and 
seminary  for  the  purpose  of  the  stud}^  of  Latin,  the  sciences,  and  buenos 
costumbres,  but  this  order  was  not  carried  into  effect  for  want  of 
necessarj^  funds,  and  it  is  doubtful  if  the  hopes  of  the  King  of  Spain  in 
that  regard  would  have  ever  been  realized  if  it  had  not  been  for  the 
testamentary  disposition  of  Don  Esteban  Rodriguez  de  Figueroa,  who 
bequeathed  to  the  institution  in  1610  a  very  considerable  property, 
which  made  it  possible  to  accomplish  the  royal  wishes  manifested 
twenty-six  years  before  and  to  found  the  college  and  seminary  of  San 
Jose.  With  the  explusion  of  the  Jesuits  this  institution  fell  into  the 
hands  of  the  King  of  Spain,  who  thereafter  exercised  the  patronate, 
direction,  and  administration  of  the  college  through  a  rector  and  admin- 
istrator appointed  by  the  governor-general  of  the  islands.  In  1875  the 
college  was  converted  into  a  school  of  medicine  and  pharmacy  and 
placed  in  charge  of  the  father  rector  of  the  Universit}'  of  Santo  Tomas, 
.who  was  empowered  to  appoint  an  administrator  to  collect  the  rents 
and  care  for  the  assets  of  the  trust  properties  of  the  college. 

The  College  of  Santo  Tomas  came  into  existence  about  the  year  1611, 
and  was  established  by  the  Order  of  St.  Dominic  for  the  purpose  of 
giving  gratuitous  instruction  to  the  sons  of  poor  families.  This  college 
was  the  forerunner  of  the  University  of  Santo  Tomas,  which  was  cre- 
ated in  1614  and  confirmed  as  a  ro3'al  pontifical  university  by  royal 
decree  of  Philip  IV  in  1623.  The  colleges  and  schools  of  secondary 
instruction  were  more  or  less  preparatory  schools  for  this  university 
and  by  it  all  were  virtually  ruled  and  controlled.  The  present  attend- 
ance on  the  university  is  about  350. 

These  foundations  of  learning  were  followed  b}^  the  establishment  of 
the  Royal  College  of  San  Juan  de  Letran  in  1610,  and  thereafter,  for 
two  hundred  and  nineteen  years,  nothing  further  seems  to  have  been 
done  to  meet  the  demands  for  advanced  instruction  of  boys  and  young 


688  REPORTS    OK    THE    CIVIL    GOVERNMENT 

men,  if  the  creation  of  a  nautical  school  in  1620  and  an  academy  of 
drawinj:^  and  painting  in  1845,  the  results  of  private  lay  enterprise,  are 
excepted. 

In  December,  1859,  the  Jesuits  returned  to  the  Philippines  and  gave 
a  new  impulse  to  education  by  establishing,  with  the  aid  of  the  city  of 
Manila,  a  nnuiicipal  school  called  the  ''Ateneo  de  Manila."  The  Ate- 
neo  not  only  I'urnished  primary  instruction,  but  also  gave  to  its  students 
a  course  in'  mathematics,  chemistry,  physics,  natural  history,  French 
and  English,  it  began  with  33  pupils,  l)ccame  a  college  in  1865,  and 
has  instructed  since  1859  over  26,000  pupils.  It  now  has  an  attendance 
of  nearly  1,200  pupils.  The  Society  of  Jesus  likewise  founded  in  1865 
a  normal  school  for  the  training  of  teachers  in  order  to  carry  out  the 
policy  of  the  Spanish  Governuient  with  reference  to  primary  instruc- 
tion. Although  this  school  furnished  a  comparatively  small  number 
of  teachers  considering  the  attendance,  as  a  school  it  was  a  success  from 
the  beginning.  It  is  still  in  existence,  has  the  best  school  building  in 
the  islands,  and  enjoys  an  attendance  of  some  600  pupils. 

In  addition  to  these  places  of  learning  established  for  boys,  schools 
for  girls  were  established  as  follows: 


Name. 


Santa  Isabela 

Santa  Catalina 

Beaterio  de  San  Ignacio 

Santa  Rosa 

Escuela  de  Maestras 

Colegio  de  la  Inmaculada  Coneepcion  . 
Colegio  de  San  Jos6  de  Jaro 


Year  of 
founda- 
tion- 


1632 
1696 
1699 
1750 

1864 
1868 
1872 


Asuncionistas,  about  1890. 

Beginning  with  1872  and  continuing  until  about  1890^  seminaries 
were  estaljlished  for  the  education  and  training  of  priestsin  the  arch- 
diocese of  Manila  and  the  diocese  of  Nueva  Segovia  (Vigan),  Cebu, 
Jaro,  and  Nueva  Caceres.  Schools  of  secondary  lay  instruction  were 
also  established  at  Guinobatan  in  1890,  and  at  Bacolod,  Negros,  in  1892. 

The  following  figures  show  the  enrollment  in  some  of  the  educa- 
tional centers  for  the  year  beginning  1886  and  ending  1887: 

Universidad  y  Colegios  de  Sto.  Tomas  y  Letran 1,  985 

Academias  de  Nautica,  Pintura  y  Contabilidad 644 

Ateneo  Municipal 273 

Escuelas  privadas  de  Latinidad 833 

Escuela  Normal  de  Maestros 443 

Seminario  Conciliar  de  Manila 52 

Seminario  Conciliar  de  Nueva  Segovia 418 

Seminario  Conciliar  de  Cebu 304 

Seminario  Conciliar  de  Jaro 400 

Seminario  Conciliar  de  Nueva  Cacerea 660 

Total 6,012 

A  study  of  the  enrollment  in  the  University  of  Santo  Tomas,  and  in 
the  colleges  of  Santo  Tomas  and  San  Juan  de  Letran,  reveals  the  inter- 
esting fact  that  the  total  matriculation  of  1,985  was  made  up  of  123 
peninsular  Spaniards,  93  insular  Spaniards,  180  Spanish  mestizos,  1,381 
Filipinos,  and  208  Chinese  mestizos. 

Primary  instruction  was  confined  to  the  schools  and  colleges  in  the 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  689 

city  of  Manila,  and  until  1863  no  attempt  whatever  was  made  to  put 
rudimentary  instruction  within  the  reach  of  the  great  mass  of  the 
school  population.  In  1863  Spain  recognized  the  urgent  necessit}^  of 
giving  greater  educational  opportunities  to  the  people  of  the  islands, 
and  b}^  royal  decree  made  provision  for  the  development  and  perfec- 
tion of  a  proper  system  of  primary  instruction.  The  decree  declared 
that  the  want  of  an  organized  SA'stem  of  primary  instruction  had  not 
only  prevented  the  acquisition  of  the  Spanish  tongue  by  the  people, 
but  had  perpetuated  among  them  an  ignorance  which  was  a  stumbling 
block  in  the  way  of  their  advancement  and  a  barrier  to  their  proper 
appreciation  of  the  beneficent  intentions  of  the  Government  and  its 
constituted  authorities.  It,  therefore,  directed  the  organization  of  a 
normal  school  in  the  cit}^  of  Manila,  and  the  creation  of  at  least  one 
primary  school  for  bo3"s  and  one  for  girls  in  every  pueblo  in  the 
islands.  Primar}^  schools  were  placed  under  the  inspection  of  a  com- 
mission composed  of  the  civil  governor,  the  archbishop  of  Manila 
and  7  members,  and  the  attendance  of  children  between  the  ages  of  7 
and  13  was  made  compulsory, 

'  The  course  of  studies  prescribed  for  primary  schools  was  as  follows: 
(1)  Christian  doctrine,  notions  of  morality,  and  sacred  history;  (2)  read- 
ing; (3)  writing;  (1)  Spanish;  (5)  arithmetic,  comprising  whole  num- 
bers, common  fractions,  decimals,  denominations,  and  notions  of  the 
metric  system;  (6)  geography  and  Spanish  histor}^;  (7)  notions  of  agri- 
culture; (8)  urbanity;  (9)  vocal  music.  Geography,  Spanish  history, 
and  agriculture  were  omitted  from  the  course  in  girls'  schools. 

The  scheme  of  primary  instruction  provided  b}'  Spain  was  adequate 
for  the  purpose  of  furnishing  a  fairl}"  good  measure  of  preliminary 
education,  but  the  want  of  proper  administration  by  the  local  author- 
ities, the  lack  of  interest  in  primary  studies  not  directly  related  to  the 
moral  training  and  religious  instruction  of  the  pupil,  the  ridiculously 
small  salaries  paid  to  teachers,  the  selection  of  instructors  incapable 
of  teaching  Spanish  and  more  in  need  of  instruction  than  capable  of 
imparting  it,  and  the  distance  of  the  barrios  and  villages  from  the 
larger  centers  of  population  where  the  primary  schools  were  usually 
located,  all  united  to  })ring  at  least  partial  failure  when  complete  suc- 
cess should  have  been  the  result  of  the  well-intended  efforts  of  the 
Government.  In  1886,  twenty -three  years  after  the  issuance  of  the 
Toyai  decree  directing  the  organization  of  the  system  of  primary 
instruction,  1,0.52  primary  schools  for  boys  and  1,091  for  girls  had  been 
established,  an  average  of  a  little  more  than  one  school  for  each  sex 
per  pueblo.  The  enrollment  was  somewhere  in  the  neighborhood  of 
200,<»0o,  but  the  attcMidanco  did  not  average  more  than  40  or  50  pupils 
to  the  school.  Christian  doctrine,  reading,  writing,  some  historical 
geography,  addition,  subtraction,  and  multiplication  usually  marked 
the  limits  of  priinar}-  instruction. 

PUBLIC   INSTRUCTION   SINCE   AMERICAN   OCCUPATION. 

When  the  treaty  of  Paris  made  it  certain  that  the  sovereignty  of  the 
islands  would  be  transferred  from  Spain  to  the  United  States,  almost 
the  first  work  undertaken  by  the  military  in  their  exercise  of  civil 
authority  was  to  reestablish  the  schools  which  the  insurrection  against 
Spain  and  the  war  between  Spain  and  the  United  States  had  practically 
closed  throughout  the  Archipelago.    This  work  was  in  thorough  accord 


690  REPORTS    OF    THE    CIVIL    GOVERNMENT 

with  the  policy  of  attraction  nuirked  out  by  President  McKinley,  and 
was  oU'ereil  to  the  Filipino  people  as  the  tirst  earnest  of  the  g-ood  inten- 
tions of  the  United  States  and  of  the  serious  purpose  of  the  adminis- 
tration to  benefit  and  advance  the  inhabitants  of  the  possessions 
acquired  as  the  result  of  the  conflict  with  their  former  sovereign. 
Even  after  the  insurrection  broke  out  against  the  United  States  the 
plan  of  giving  to  the  Filipino  children  the  advantage  of  free  public 
instruction  was  never  abandoned,  but  Avas  adhered  to  wherever  cir- 
cumstances permitted  and  conditions  were  at  all  favorable  to  the  build- 
ing up  of  a  school.  Of  course,  instruction  in  time  of  such  great  public 
disturbance  was  necessaril}^  imperfect  and  desultory,  yet  it  served  the 
purpose  in  many  localities  of  bridging  the  way  to  the  hearts  of  parents 
and  operated  as  a  restraining  influence  to  prevent  them  from  becom- 
ing active  participants  in  a  movement  with  which  many  of  them 
undoubtedl}^  sympathized.  The  American  soldier,  acting  in  the  role 
of  an  instructor  of  a  people  in  arms  against  his  country,  was  an  object 
lesson  which,  while  it  did  not  serve  to  convince  the  insurgents  of  the 
error  of  their  ways,  at  least  caused  many  of  the  better  element  among 
them  to  soberl}^  inquire  of  themselves  whether,  after  all,  the  United 
States  might  not  have  the  welfare  and  well-being  of  the  Filipino 
people  very  much  at  heart. 

With  the  advent  of  civil  government  came  the  creation  of  a  system 
6f  public  instruction,  and  to  Professor  Moses  and  Doctor  Atkinson, 
men  skilled  in  the  work,  is  due  the  great  credit  of  giving  to  the  islands 
an  educational  organization  which,  all  prophecies  to  the  contrary,  has 
met  with  a  success  beyond  expectation.  After  a  careful  canvass  of 
the  entire  situation  and  after  satisfying  themselves  that  there  was  an 
earnest  desire  to  acquire  a  knowledge  of  English,  Professor  Moses 
and  Doctor  Atkinson  cut  loose  from  all  established  traditions  and  made 
English  the  language  of  the  schools.  Men  and  women  trained  in  the 
profession  of  teaching  were  brought  from  the  United  States  and  with- 
out understanding  a  word  of  Spanish  or  of  the  local  dialects  they  set 
to  work  to  impart  information  in  an  unknown  tongue.  At  first  blush 
the  prophets  of  failure  would  seem  to  have  had  some  ground  for  their 
prognostications,  yet  experience  proved  to  a  demonstration,  that  to 
teach  in  a  language  unknown  to  the  pupils  was  not  only  not  an  impos- 
sible task,  but  that  nothing  more  was  required  for  that  purpose  than 
an  intelligent  return  to  first  principles  and  the  systematic  use  of  meth- 
ods employed  by  all  mankind  in  giving  or  acquiring  information  under 
similar  conditions.  The  fact  that  the  pupils  did  not  understand  the 
instructor  and  that  the  instructor  did  not  understand  the  pupils  may 
have  retarded  general  instruction  for  a  little  while,  but  it  more  than 
compensated  for  that  disadvantage  by  making  English  the  dominant 
and  controlling  study  of  the  curriculum.  Object  lessons,  frequent 
repetitions,  and  constant  use  of  English  in  the  school  room  quickly 
gave  to  the  children  a  working  vocabulary,  and  after  that  the  students 
themselves,  moved  by  the  pride  of  newly  acquired  knowledge,  smoothed 
the  path  to  free  communication  between  teacher  and  pupil. 

In  man}^  of  the  pueblos,  not  to  say  many  of  the  provinces,  after  five 
years  of  American  occupation,  there  is  more  English  spoken  than 
Spanish,  and  this,  in  my  humble  opinion,  is  the  most  hopeful  sign  of 
a  speedy  and  general  understanding  b}^  the  Filipinos  of  the  real  pur- 

f)oses  of  the  American  Government  and  of  their  rights,  duties,  and 
iberties  under  the  rule  of  their  new  sovereign.     Lack  of  a  common 


OB'    THE    PHILIPPINE    ISLANDS,    1900-1903.  69 1 

language  was  one  of  the  fruitful  sources  of  trouble  for  Spain;  it  was 
[.  one  of  the  principal  causes  which  precipitated  the  insurrection  against 
our  own  countr}',  and  it  is  the  one  obstacle  to-day  to  a  complete 
understanding  of  our  motives  and  purposes  in  the  islands.  If,  there- 
fore, the  bureau  of  education  accomplishes  nothing  more  than  to 
make  English  the  tongue  commonly  spoken  and  commonly  used  by 
the  people  of  the  archipelago,  it  will  more  than  have  justified  its 
existence  and  all  the  expense  it  has  incurred. 

ORGANIZATION. 

The  islands  are  di viewed  into  35  school  divisions  under  the  immediate 
charge  of  as  many  division  superintendents, who  are  responsible  to  the 
general  superintendent  at  Manila  for  the  public  schools  in  their 
respective  jurisdictions.  As  a  general  rule  each  province  constitutes 
a  school  division.  In  some  school  divisions,  however,  such  as  Albay 
and  Sorsogon,  Cagayan  and  Isabela,  Ilocos  Sur  and  Abra,  Iloilo  and 
Antique,  and  Pampanga  and  Bataan,  two  provinces  have  been  united 
for  the  purpose  of  constituting  a  division.  In  all,  681  municipal  and 
384  barrio  primaiy  schools  have  been  established.  As  a  rule,  Ameri- 
can teachers  are  assigned  to  duty  in  the  municipalities  of  the  greatest 
importance  in  the  division,  and  native  teachers  to  barrios  and  munic- 
ipalities of  lesser  consequence. 

I  ,  In  addition  to  the  primary  schools,  a  nautical  school  for  the  pre- 
'  paratory  training  of  mariners,  a  trade  school  for  instruction  in  useful 
trades  and  mechanical  arts,  a  normal  school  for  the  proper  training 
and  instruction  of  native  teachers,  and  38  secondary  schools  have  been 
organized.  The  normal  school  has  an  attendance  of  323,  the  nautical 
school  113,  the  trade  school  119,  and  the  secondaiy  schools  6,340.  ~j 
Twenty-five  of  the  graduates  of  the  nautical  school  are  employed  as 
captains  and  mates  on  steamers  and  sailing  vessels  engaged  in  the 
coastwise  trade,  and  receive  salaries  ranging  from  $60  to  1275  a  year 
and  found,  together  with  a  promise  of  advancement  as  they  obtain 
more  practical  experience.  «^esides  the  instruction  given  in  the  trade 
school  in  various  useful  trades,  special  instruction  in  every  branch  of 
the  printer's  and  allied  trades  is  given  to  apprentices  in  the  bureau  of 
public  printing,  and  practical  training  in  fine  carpentry,  staining,  pol- 
ishing, cabinet  work,  and  wood  carving  is  given  in  the  forestry  bureau. 
Neither  the  bureau  of  public  printing  nor  the  forestry  bureau  is  under 
the  control  of  the  bureau  of  education,  yet  the  work  accomplished  by 
them  in  training  students  as  craftsmen  and  artisans  should  receive 
mention  in  tliis  place  as  a  portion  of  the  work  of  instruction  "promoted 
and  carried  on  by  the  insular  government.  In  many  of  the  secondary 
schools  industrial  work  of  various  kinds  is  made  a  feature  and,  while 
no  great  progress  has  up  to  this  time  been  made  in  that  dire(;tion,  it  is 
felt  that  with  proper  organization  and  suitable  appliances  and  equip- 
ment this  kind  of  educational  work  will  meet  with  the  hearty  response 
of  the  youth  of  the  country,  especially  in  the  case  of  useful  trades 
where  deftness,  delicacy  of  touch,  and  faithful  imitation  are  required. 

THE   TEACHING   FORCE. 

The  teaching  force  in  the  islands  is  made  up  of  691  American  and 
2,496  native  teachers.     The  total  number  of  American  teachers  at  the 


692  UKPORTS    OK    THE    CIVIL    GOVERNMENT 

beginning  of  the  last  school  year  was  in  the  neighborhood  of  926,  but 
owing  to  resignations,  sickness,  expiration  of  term  of  service,  and 
other  causes  this  luiniber  at  the  end  of  the  school  j^ear  suffered  a  net 
reduction  of  203,  which  has  been  increased  at  the  date  of  writing  this 
report  by  an  additional  loss  of  32.  All  the  American  and  about  150 
of  the  native  teachers  are  paid  out  of  insular  funds.  Native  teachers 
not  on  the  insular  pay  rolls  arc  i)aid  by  tlic  uuuiicipalities,  except  such 
as  are  paid  by  the  provinces  while  on  duty  in  the  provincial  schools. 
The  appropriation  bill  for  the  first  half  of  the  present  iiscal  year  fixed 
the  salaries  of  teachers  payable  out  of  insular  funds  as  follows: 

Secondari^  teachers.— Seven  at  $1,800  each;  27  at  $1,500  each;  2  at  $1,400  each;  1  at 
$1,380;  13  at  $1,350  each;  3  at  $1,320  each;  2  at  $1,300  each;  15  at  $1,200  each;  1  at 
$900 

Elementarii  teachers.— Thxrij  at  $1,500  each;  14  at  $1,400  each;  7  at  $1,380 each;  27  at 
$1,350  each;" 20  at  $1,320  each;  34  at  $1,300  each;  2  at  $1,275  each;  1  at  $1,256,  3  at 
$1,250  each;  333  at  $1,200  each;  16  at  $1,140  each;  22  at  $1,100  each;  19  at  $1,080  each; 
3  at  $1,020  each;  211  at  $1 ,000  each ;  101  at  $900  each ;  1  at  $780;  2  at  $750  each ;  3  at  $720 
each;  21  at $600 each;  20 at $480 each;  40 at $360 each;  40at$300each;  30at$240each. 

Special  teachers.— One  at  $2,000,  teacher  of  botany;  1  at  $2,000,  teacher  of  drawing  and 
art;  1  at  $2,000,  teacher  at  trade  school;  1  at  $1,500,  in  cliarge  of  nautical  school;  3  at 
$1,200  each,  teachers  at  nautical  school;  1  at  $650,  teacher  at  nautical  school. 

The  full  number  of  teachers,  however,  for  which  provision  was  made 
by  the  appropriation  bill  was  not  engaged,  and  the  amount  appropri- 
ated will  be  considerably^  more  than  the  salary  expense  actually  incurred. 
The  annual  salaries  of  native  teachers  paid  by  the  municipalities  range 
from  $180  to  |360  Mexican  currency.  For  work  in  the  provincial 
schools  the  provinces  pay  native  teachers  monthly  salaries  of  $50  to 
175  Mexican  currency.  Native  teachers  on  the  insular  pay  rolls 
receive  from  $21:0  to  $750  gold  annually. 

Many  American  teachers  have  complained  that  the  salaries  paid  are 
insufficient,  taking  into  consideration  their  service  in  a  tropical  climate, 
the  cost  of  living,  and  the  inconveniences,  not  to  say  hardships,  suffered 
by  them  in  meeting  conditions  entirely  different  from  those  to  which 
they  were  accustomed  at  home.  My  own  opinion  is  that  the  salaries 
paid  are  not  inadequate,  and  that,  giving  full  weight  to  all  the  burdens 
imposed  on  teachers  b}^  their  new  environment,  the  compensation 
received  by  them  more  than  favorabl}^  compares  with  that  allowed  in 
many  of  the  States  of  the  Union  where  the  climate  is  certainly  no  better 
than  that  of  the  Philippines. 

It  is  noted,  however,  that  as  most  of  the  teachers  adjust  themselves 
to  their  surroundings  and  make  acquaintances  among  the  people  they 
develop  an  active  interest  in  their  work,  which  reduces  the  difficulties 
of  new  conditions  to  proper  proportions,  and  the  disposition  to  com- 
plain of  their  compensation  is  not  so  pronounced. 

Some  dissatisfaction  was  also  created  by  the  impression  which  had 
gained  a  foothold  among  the  American  teachers  that  their  transporta- 
tion to  the  United  States  on  separation  from  the  service  would  be 
provided  by  the  Government.  Some  insisted  that  representations  to 
that  effect  had  been  made  to  them  prior  to  their  departure  from  the 
United  States,  and  the  free  use  of  the  transport  service  ])y  the  insular 
government  for  the  benefit  of  teachers  confirmed  in  most  of  them  the 
idea  that  the  Government  was  in  duty  bound  to  furnish  them  with  the 
means  of  returning  to  the  homes  from  which  they  were  taken.  In 
view  of  all  the  circumstances  it  was  thought  wise  to  furnish  trans- 
portation to  San  Francisco  to  all  teachers  leaving  the  service  at  the 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  693 

end  of  the  last  school  year,  and  as  the  civil  government  was  no  longer 
able  to  avail  itself  of  the  army  transport  service  the  sum  of  $15,000 
was  appropriated  to  meet  the  necessary  expense.  Since  then  a  law 
has  been  passed  giving  to  all  civil  employees  free  transportation  to 
San  Francisco  on  separation  after  three  years  of  faithful  service,  and 
it  is  thought  that  future  misunderstandings  on  this  account  will  not 
occur. 

Experience  has  demonstrated,  at  least  to  my  satisfaction,  that  the 
present  plan  which  gives  to  the  division  superintendent  the  power  to 
employ  native  teachers  and  to  fix  their  salaries,  and  no  authority  what- 
ever to  oblige  municipalities  to  make  the  necessary  appropriation  or 
to  pay  the  salaries  fixed,  is  a  mistake  and  must  be  changed  sooner  or 
later."  American  teachers  were  made  a  charge  on  the  insular  treasury, 
for  the  reason  that  the  salaries  of  such  teachers  were  beyond  the  finan- 
cial ability  of  the  municipalities,  or  even  of  provinces,  to  pay.  It  was 
believed,  however,  that  the  payment  of  native  teachers  was  not  beyond 
the  ability  of  provincial  and  local  governments,  and  that  at  least  that 
responsibility  should  be  imposed  upon  them  if  for  no  other  purpose 
than  to  give  them  a  strong  financial  interest  in  the  success  of  the 
schools.  The  event  has  shown,  however,  that  while  it  may  be  safely 
said  that  90  per  cent  of  the  municipalities  take  a  deep  and  abiding 
interest  in  education,  their  lively  sympathy  does  not  always  go  to  the 
extent  of  providing  the  necessar}^  means  to  pay  the  expenses.  In  some 
municipalities  the  faihire  to  pay  the  monthly  stipend  of  native  instruct- 
ors was  due  to  lack  of  funds  to  pay  anyone,  but  in  others  the  dispo- 
sition seemed  to  be  to  meet  every  municipal  obligation  except  that 
incurred  to  teachers.  The  school  fund,  in  my  opinion,  should  be 
expended  only  on  the  approval  of  the  division  superintendent,  and  in 
no  event  should  other  calls  be  honored  on  the  fund  unless  there  is 
sufiicient  money  actually  on  hand  to  meet  the  salary  demands  for  the 
year.  In  the  interest  of  retaining  many  good  Filipino  teachers,  and 
as  an  incentive  to  others  to  endure  the  existing  conditions  in  the  hope 
of  future  promotion,  the  insular  government  made  provision  for  the 
payment  of  the  salaries  of  150  native  teachers  out  of  insular  funds,  and 
this  number  will  be  increased  by  the  end  of  the  calendar  year  to  200. 

ATTENDANCE. 

In  the  months  of  September,  October,  November,  and  December  of 
last  year  there  was  a  very  notable  diminution  in  the  attendance  on  the 
public  schools.  This  was  caused,  to  a  great  extent  by  the  prevalence 
of  cholera  and  smallpox  and  the  almost  countless  misifortunes  and  dis- 
couragements which  assailed  the  whole  body  of  the  people  after  six 
years  of  war  and  public  disturbance.  To  some  extent  the  decrease  in 
attendance  was  also  due  to  the  fact  that  the  novelty  of  the  American 
schools  had  worn  otf,  and  that  there  was  a  suspicion  that  the  schools 
were  to  be  used  as  an  insidious  means  of  undermining  and  destroying 
in  the  child  its  belief  in  the  religion  to  which  the  parents  adhered. 
Moreover,  many  of  the  teachers  were  entirely  new  to  the  work,  and 
confronted  at  the  beginning  of  their  labors  with  the  great  difficulty  of 
making  themselves  understood.  Their  flagging  interest  and  discour- 
agement, often  manifested  by  open  impatience,  immediately  resulted 
in  apathy  on  the  part  of  the  students  and  consequent  loss  of  attend- 
ance.   At  the  beginning  of  the  present  school  y  eai-,  however,  the  cholera 


G94 


UKroKTS    OF    THE    CIVIL    GOVERNMENT 


and  sniullpox  luul  fairly  worn  (heniselves  out;  the  people  had  become 
more  uceustonied  to  their  misfortunes  and  troubles;  the  policy  of  non- 
interference in  religious  matters  by  the  Government  had  weakened  in 
a  marked  deo-rec  the  suspicion  that  there  was  to  be  interference  by 
teachers  witli  the  religion  of  the  children;  and  teachers,  revived  by 
two  month's  vacation,  came  ba(.'k  to  their  labors  with  renewed  energy, 
and  above  all  with  the  coniident  hope  that  a  little  perseverance  and 
patience  would  finally  overcome  their  diflSculties.  The  consequence 
was  a  pronounced  increase  in  both  the  enrollment  and  attendance  from 
the  very  beginning  of  the  3"ear,  and  the  enrollment  and  attendance 
have  gone  on  steadily  increasing  in  practically  ever}^  province  with 
but  one  or  two  exceptions.  In  the  divisions  of  Pangasinan,  Tarlac, 
Kizal,  Oriental  Negros,  Manila,  Pampanga-Bataan,  Laguna,  and  Bula- 
can,  the  increase  in  enrollment  has  been  most  decided  and  gratifying, 
as  the  following  table  of  enrollment  for  the  months  of  September  and 
October  of  this  year  will  show: 

Enrollment,  of  public  day  schools. 


Division. 


September. 


October. 


Pangasinan 

Tarlac 

Rizal 

Oriental  Negros  . . . 

Manila 

Pampanga-Bataan 

Laguna 

Bulacan 


8,737 
3,966 

4,745 
5,131 
4,567 
8,030 
3,701 


Total  gain . 


10, 730 
5,253 
4,994 
7,303 

4,887 
8, 735 
4,197 
10, 569 


1,993 

1,287 
249 

2, 172 
320 
705 
496 

1,681 


8,903 


While  the  same  extraordinary  advance  has  not  been  made  in  all  the 
provinces,  the  increase  in  attendance  in  the  provinces  just  mentioned 
is  typical  of  the  great  interest  taken  in  the  schools  and  of  the  steady 
advance,  which  has  suffered  no  diminution  or  backset  since  June  last. 

The  Christian  population  of  the  islands  as  given  by  the  last  census  is 
6,967,011,  and  the  school  population  is  roughly  estimated  at  1,42-1,776, 
of  which  182,202  have  been  enrolled  in  the  day  schools  and  11,429  in 
the  night  schools,  making  a  total  of  193,731  who  have  been  brought 
within  the  sphere  of  educational  influence.  The  actual  average  attend- 
ance on  day  schools  is  131,371  and  on  night  schools  8,595,  making  a 
total  attendance  of  139,966,  or  about  73  per  cent  of  the  enrollment. 
The  number  enrolled  in  proportion  to  the  whole  school  population  is 
small,  yet  when  it  is  considered  that  an  average  of  less  than  700 
American  teachers  has  brought  about  this  result  in  two  years'  time, 
during  part  of  which  cholera  ravaged  the  islands,  causing  the  death  of 
rnorethan  150,000  of  the  inhabitants,  the  achievement  is  not  disap- 
pointing. 

Since  the  submission  of  his  report,  the  general  superintendent  has 
prepared  and  submitted  to  this  office  a  table  carrying  the  more  impor- 
tant items  of  statistical  information  of  his  bureau  down  to  the  month 
of  September.  This  table,  which  is  given  in  full  in  Exhibit  A,  shows 
the  Christian  population  and  number  of  towns  of  each  province  as 
shown  by  the  census  lately  taken,  the  num])er  of  American  teachers, 
the  number  of  native  teachers,  the  enrollment  and  attendance   by 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  695 

provinces  in  schools  under  American  teachers,  the  enrollment  and 
attendance  hy  provinces  in  schools  under  native  teachers,  the  total 
enrollment  and  attendance  by  provinces,  and  an  estimate  of  the  school 
population  b}^  provinces.  The  totals  as  shown  by  the  table  are  as 
follows: 

Christian  population - 6, 967,  Oil 

Number  of  towns 934 

Number  of  towns  with  American  teachers 338 

Number  of  American  teachers 691 

Number  of  native  teachers ' -  -  -  2, 496 

Enrollment  in  towns  und^r  the  supervision  of  American  teachers,  exclusive 

of  night  schools 123, 147 

Attendance  in  towns  under  the  supervision  of  American  teacers,  75  per 

cent  of  enrollment 92,  627 

Enrollment  in  towns  not  under  the  supervision  of  American  teachers, 

exclusive  of  night  schools 59, 055 

Attendance  in  towns  not  under  the  supervision  of  American  teachers,  65 

per  cent  of  enrollment 38,  754 

Total  enrolhnent,  exclusive  of  night  schools 182, 202 

Total  attendance,  72  per  cent  of  enrollment 131,  371 

Total  estimated  school  population 1,  424,  776 

Percentage  of  estimated  school  population  now  enrolled  in  the  schools 

(exclusive  of  night  schools) 13 

RELATIONS   OF   AMERICAN   TEACHERS   TO    THE   PEOPLE. 

When  the  insurrection  against  the  United  States  was  definitely  ended 
and  the  insurgents  were  forced  to  submit  to  the  inevitable,  their  sub- 
mission did  not  bring  with  it  any  particular  good  will  to  those  whom 
they  had  so  lately  regarded  as  enemies.  Neither  the  American  soldier 
nor  the  Filipino  insurgent  would  make  or  was  disposed  to  make  the 
first  advance  to  a  better  state  of  feeling.  The  blood  of  the  insurgents 
had  been  shed  and  they,  in  their  turn,  had  shed  that  of  the  American 
soldier.  Conditions,  therefore,  were  not  at  all  favorable  on  either 
side  for  the  creation  of  an  era  of  good  feeling  or  the  burying  of  the 
dead  but  well-remembered  past. 

The  first  decided  break  after  the  insurrection  in  the  mutual  senti- 
ment of  estrangement  between  Americans  and  Filipinos  came  with  the 
advent  of  civil  government  and  the  initiation  of  a  policy  of  attraction 
coupled  with  just,  firm,  and  merciful  treatment.  Apart  from  the  per- 
sonal attitude  of  the  members  of  the  Civil  Commission  and  the  influence 
of  an  impartial  judiciary,  which  dealt  out  justice  to  Filipino  and  Ameri- 
can alike,  this  policy  was  brought  home  to  the  people  in  no  inconsid- 
erable degree  by  the  disinterested  devotion  and  unselfish  work  of  the 
American  teacher.  From  the  beginning  the  relations  of  the  American 
teacher  to  the  people  have,  as  a  rule,  been  pleasant  and  agreeable. 
Even  in  provinces  where  there  was  more  or  less  disturbance  and 
ladronism,  the  almost  sacred  regard  in  which  the  teacher  was  held 
exempted  him  from  violence,  and  T  know  of  none  who  came  to  grief 
except  four  teachers  who  were  killed  while  traveling  in  the  mountains 
where  their  status  was  unknown — one  who  was  mistaken  for  the  pro- 
vincial treasurer  and  stabbed  to  death  to  secure  the  money  which  it 
was  thought  he  carried,  one  who  lost  his  life  while  leading  an  armed 
party  against  the  ladrones,  and  one  who  was  robbed  of  his  watch  and 
money,  but  not  otherwise  molested. 

So  clearly  have  the  people  manifested   their   predilection  for  the 


090  REPORTS    OF    TIIK    CIVIL    GOVERNMENT 

Ainorican  instructor  that  ii  failure  on  his  part  to  maintain  a  warm 
local  interest  in  the  success  of  his  school  nviy  be  usually  attributed 
rather  to  some  cause  personal  to  himself  than  to  any  popular  senti- 
ment against  the  school. 

SCHOOLHOU8ES. 

One  of  the  great  obstacles  to  the  growth  of  the  school  work  in  the 
islands  has  been  the  lack  of  proper  school  accommodations.  Since  the 
beginning  of  the  3'ear,  however,  considerable  activity  has  been  mani- 
fested in  the  construction  and  repair  of  school  structures,  generall}^  in 
those  towns  where  the  land  taxes  have  been  collected.  Many  school 
buildings  have  been  completed  during  the  year,  quite  a  number  are 
under  construction,  and  plans  for  others  are  in  course  of  preparation. 
In  some  of  the  municipalities  where  there  was  a  lack  of  funds  to  pay 
laboi",  the  timbers  for  buildings  have  been  cut  and  the  buildings  con- 
structed by  voluntary  labor,  and  sometimes  by  the  students  themselves. 
In  needy  provinces,  where  an  additional  food  supply  was  required, 
division  superintendents  have  availed  themselves  of  the  rice  purchased 
out  of  the  Congressional  relief  fund  in  order  to  relieve  the  distress,  and  at 
the  same  time  secure  improved  school  accommodations.  Great  interest 
is  taken  by  the  provinces  in  the  provincial  schools,  many  of  them  apply- 
ing to  the  insular  government  for  loans  in  order  to  secure  the  erection 
of  edifices  appropriate  for  the  purposes  of  secondary  instruction.  In 
some  few  cases  the  competition  by  municipalities  to  secure  the  site  of 
the  provincial  school  has  been  very  intense,  and  through  this  rivalry 
some  provinces  have  been  enabled  to  secure  valuable  and  adequate 
sites  and  sucli  liberal  contributions  from  the  people  that  the  necessity 
of  applying  to  the  insular  government  for  aid  has  been  avoided. 

MORO    PROVINCE. 

The  act  of  the  Commission  providing  for  the  organization  and  gov- 
ernment of  the  Moro  Province  passed  June  1,  1903,  practically  legis- 
lated out  of  existence  the  school  division  of  Mindanao  and  Jolo. 
Dr.  N.  M.  Saleeby,  a  man  well  acquainted  with  the  Moro  people, 
their  language  and  customs,  was  appointed  superintendent  of  the 
school  system  in  the  new  province  and  charged  with  the  general  super- 
vision of  all  school  matters  in  that  jurisdiction.  Out  of  the  school 
division  of  Samar  and  Leyte  two  school  divisions  were  created  by  act 
No.  917,  and  Henry  S.  Townsend,  the  former  superintendent  of  the 
division  of  Mindanao  and  Jolo,  was  transferred  to  the  new  school 
disvision  of  Samar.  B.  B.  Sherman,  former  division  superintendent 
of  the  united  provinces,  was  left  in  charge  of  the  division  of  Leyte. 

Under  the  act  creating  the  Moro  Province  all  reports  of  its  division 
superintendent  are  required  to  be  made  to  the  provincial  governor, 
copies  of  such  reports  being  forwaided  to  the  general  superintendent 
of  education.  The  American  teachers  located  in  the  former  division 
of  Mindanao  and  Jolo  were  transferred  to  the  new  division,  which  has 
assumed  the  responsibility  for  the  payment  of  their  salaries  from  and 
after  October  1  of  this  year.  AH  school  supplies  in  the  original 
division  have  been  also  turned  over  to  Doctor  Saleeby,  the  present 
division  superintendent. 


OF    THE    PHILIPPINE    ISLANDS,   1900-190.3.  697 

THE   WORK   ACCOMPLISHED   AND   THAT   WHICH   REMAINS   TO    BE   DONE. 

Since  the  organization  of  the  bureau  of  education,  a  little  more  than 
two  years  ago,  one  of  its  principal  objects  has  been  the  creation  of  a 
system  of  primary  instruction  so  extensive  as  to  place  within  the  reach 
of  ever}^  child  of  school  age  in  the  islands  the  means  of  obtaining  at 
least  the  rudiments  of  an  education.  It  is  useless  to  think  that  this 
result  can  be  obtained  through  the  medium  of  American  instructors 
only.  To  place  one  American  teacher  in  every  important  municipal 
and  barrio  school  in  the  islands  would  require  at  least  seven  times  the 
number  of  teachers  now  in  the  service,  and  would  involve  an  expense 
which  could  not  be  borne.  If  the  smaller  centers  of  population  are  to 
be  reached  at  all  the}"  must  be  reached  by  a  corps  of  instructors  born 
in  the  country,  able  to  resist  the  insidious  influence  of  a  tropical  climate, 
acquainted  with  the  habits,  customs,  and  language  of  the  people,  and 
carefully  trained  for  the  work  by  American  teachers.  Holding  this 
opinion,  the  bureau  of  education  has  established  in  Manila  a  well 
equipped  normal  school,  and  has  encouraged  secondar}^  schools  in  the 
practice  of  selecting  bright  pupils  to  aid  and  assist  in  the  instruction 
of  their  fellow-students.  A  system  of  provincial  normal  institutes  has 
been  established,  where  every  year  during  the  vacation  time  the  local 
force  of  teachers,  American  and  native,  including  aspirantes,  is  brought 
together  for  a  course  of  advanced  study  and  mutual  improvement. 
During  this  present  calendar  year  normal  institutes  were  held  in  30 
provinces,  with  an  enrollment  of  more  than  5,000.  Some  time  is  given 
every  day  by  American  teachers  to  the  instruction  of  their  Filipino 
assistants.  From  all  this  it  is  hoped  that  the  native  contingent  will 
soon  be  brought  up  to  the  standard  of  modern  instructors,  and  that  a 
force  of  Filipino  educators  amply  sufiicient  to  supply  this  demand  for 
primary  teachers  will  be  created. 

Besides  all  this,  the  Civil  Commission  has  provided  for  the  sending 
of  100  Filipino  students  to  the  United  States  for  four  years  of  study 
and  experience  in  American  schools.  The  students  selected  were 
placed  in  charge  of  Professor  Sutherland,  who  for  the  time  being 
nas  assigned  them  to  various  secondary  and  grammar  schools  in  south- 
ern California  in  order  to  avoid  the  rigors  of  an  eastern  winter  and 
to  perfect  his  charges  in  English  before  finally  entering  them  at  the 
various  colleges  and  universities  selected  for  their  education.  From 
this  body  oiF  students,  and  from  the  other  sources  of  supply  already 
established  in  the  islands,  it  is  confidently  hoped  that  a  corps  of  Fili- 
pino t(»achcrs,  thoroughly  acquainted  with  our  educational  methods, 
will  l)e  developed  to  take  care  of  primary  instruction  and  to  aid  in 
supervisory  work  now  almost  wholly  confided  to  Americans. 

Next  in  impoi-tanc(^  after  the  creation  of  a  supply  of  native  teachers 
comes  instruction  in  useful  trades  and  the  mechanical  arts  and  sciences 
necessary  for  the  industrial  development  of  the  country.  A  trade 
school  has  therefore  been  established  in  Manila,  and  lately  industrial 
and  trade  instruction  has  been  made  a  feature  of  many  of  the  provin- 
cial and  secondary  s(;hools.  This  branch  of  instruction  is,  as  has  been 
already  stated,  in  its  infancy,  and  while  no  great  progress  has  been 
made,  it  is  confidently  believed  that  besides  giving  to  the  islands  a 
supply  of  educated  Filipino  artisans  and  mechanics,  it  will  compel  a 
due  regard  and  respect  for  the  dignity  of  labor.     Of  course  no  attempt 


(V.)8 


KKl'ORTS    OK    THK    CIVIL    GOVERNMENT 


will  bo  made  to  force  any  pupil  fj-om  his  natiival  inclination  for  one 
pursuit  rather  than  another,  but  ample  opportunity  will  be  given  to 
every  student  to  follow  the  A'ocation  for  which  he  is  best  adapted  and 
to  a\'oid  the  career  for  which  he  is  luisuited  or  unlit. 

CHANGES   OF   SUPERVISORY    PERSONNEL. 

On  December  81,  1902,  Prof.  Bernard  Moses,  secretary  of  public 
instruction,  and  Dr.  Fred  W.  Atkinson,  general  superintendent  of 
education,  retired  from  the  service,  and  the  writer  and  Dr.  Elmer  B. 
Bryan  were  appointed  to  succeed  them,  respectively.  Doctor  Bryan, 
however,  was  compelled  to  resign  his  position  in  August  of  the  present 
year  on  account  of  illness.  The  estimation  in  which  he  was  held  and 
the  value  the  Government  placed  on  his  services  is  best  shown  by  the 
following  resolutions  adopted  b3"the  Commission  on  his  retirement: 

The  president  presented  the  resignation  of  E.  B.  Bryan,  general  superintendent  of 
education,  in  the  words  fol'owing: 

"Acting  upon  the  advice  of  my  physician,  I  have  the  honor  to  tender  my  resigna- 
tion as  chief  of  the  bureau  of  education,  effective  at  the  expiration  of  my  accrued 
leave.  I  hope  to  leave  Manila  on  the  Oily  of  Pekin  August  13.  The  secretary  of 
public  instruction  has  the  matter  of  leave  under  consideration.  The  necessity  of 
giving  up  this  piece  of  work  to  which  I  hoped  to  devote  many  years  is  the  greatest 
disappointment  of  my  life.  I  wish  to  thank  you  for  your  kindly  consideration  and 
encouragement  at  all  times."     Whereupon,  on  motion,  it  was 

Resolved,  That  the  Commission  learns  with  great  regret  of  the  necessity  for  Mr. 
Bryan's  resignation,  and  wishes  to  express  to  him  its  apjireciation  of  his  very  hard 
w^ork  and  of  his  most  efficient  service,  both  as  superintendent  of  the  normal  school 
and  as  general  superintendent  of  education,  and  sympathizes  deeply  with  him  in  his 
disappointment  at  not  being  able  to  continue  the  work  for  which  he  was  so  admirably 
fitted  and  in  which  success  certainly  lay  before  him. 

******* 
And  be  it  further  resolved,  That  a  copy  of  this  resolution  be  sent  to  Doctor  Bryan, 
with  the  expression  of  the  hope  on  the  part  of  the  Commission  that  on  returning  to 
America  he  will  find  health  and  another  opportunity  for  the  exercise  of  his  most 
useful  talents,  which  will  be  much  missed  in  these  islands. 

Dr.  David  P.  Barrows,  the  present  general  superintendent,  then  the 
chief  of  the  bureau  of  non-Christian  tribes,  and  formerl}^  superin- 
tendent of  schools  for  the  city  of  Manila,  was  immediately  appointed 
to  succeed  him. 

APPROPRIATIONS,  EXPENDITURES,    AND   UNEXPENDED   BALANCES. 

The  following  shows  the  appropriations  and  the  expenditures  of  the 
bureau  of  education  during  the  fiscal  year  ending  June  30,  1903: 


Amount  appro- 
priated. 

Amount  ex- 
pended. 

Unexpended 
balances. 

For  salaries  and  wages,  oflace  force  of  general  superin- 
tendent   

139,810.00 
1,348,558.33 

34, 508. 37 
125,000.00 

14,285.00 

S33, 144. 64 

1,036,624.67 

28, 237. 32 

17,684.97 

12, 942. 21 

16,665.46 

312, 033. 76 

6,271  05 

For  salaries  and  wages  entire  teaching  force 

For  transportation 

For  school  furniture  and  supplies 

107,415.03 
1  342  79 

For  contingencies 

Total 

Amount  returned  to  the  treasury 

1,662,161.70 

1, 128, 433. 63 
294,086.17 

3,261.665 

433,728.09 

Difference  occasioned  by  expression  in  United  States 
currency  of  amounts  paid  in  Mexican  currency 

297  347  835 

Amount  remaining  on  hand 

136  380  266 

OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  699 

For  more  detailed  information  concerning-  the  public  schools  during 
the  past  3'ear,  reference  is  made  to  Exhibit  A,  which  is  hereto  attached 
and  made  a  part  of  this  report. 

BUREAU   OF   ARCHITECTURE   AND    CONSTRUCTION   OF   PL'BLIC   BUILDINGS. 

The  exigent  demand  for  proper  office  and  building  accommodations 
for  the  various  bureaus,  coupled  with  the  necessity  of  making  many 
important  public  improvements  of  a  permanent  character,  has  about 
doubled  the  work  of  the  bureau  of  architecture  and  construction  of 
public  buildings  during  the  past  year. 

OFFICE    PERSONNEL    AND    OTHER    EMPLOYEES. 

The  chief  of  bureau,  1  master  builder,  1  superintendent  of  construc- 
tion, 2  engineers,  1  disbursing  officer,  7  draftsmen,  4  clerks,  1  store- 
keeper, 2  stenographers,  1  janitor,  and  1  messenger  constitute  the 
office  force  of  the  bureau.  The  actual  work  of  construction,  altera- 
tion, and  repair  falling  within  the  province  of  the  bureau,  on  the 
average  is  carried  on  by  357  skilled  and  unskilled  laborers  under  the 
supervision  and  control  of  the  chief  of  bureau,  the  master  builder, 
the  superintendent  of  construction,  and  6  English-speaking  foremen. 
Two  Chinese,  12  Japanese,  and  343  Filipinos  make  up  the  full  number 
of  sldlled  and  unskilled  laborers  at  present  employed.  The  average 
number  of  laborers  employed  a  year  ago  was  150,  of  whom  97  per  cent 
were  Chinese. 

WORK  OF  THE  BUREAU  DURING  THE  YEAR. 

A  commodious  second  story  was  added  to  the  old  storeroom,  a 
building  50  feet  wide  and  75  feet  long,  and  the  bureau  is  now  comfort- 
ably housed  in  the  addition,  which  is  provided  with  all  the  facilities 
necessary  for  the  preparation  of  plans,  detail  drawings,  and  other 
necessary  preparatory  work.  A  sanitarium,  5  cottages,  and  a  stable 
to  shelter  40  horses  were  erected  at  Baguio.  The  making  of  a  summer 
capital  at  Baguio  is  now  in  contemplation,  and  plans  for  substantial 
government  buildings  at  that  place  have  been  submitted  to  the  Com- 
mission. A  substantial  addition  has  been  made  to  the  custom-house, 
and  the  old  custom-house  is  in  process  of  refitting  and  remodeling. 

Plague,  cholera,  and  smallpox  hospitals,  provided  with  electric  lights, 
sanitary  plumbing,  proper  drainage,  and  other  modern  conveniences, 
have  been  constructed  for  the  board  of  health.  The  hospitals  are 
single-stor}^  structures  arranged  on  the  pavilion  plan.  San  Lazaro 
Hospital  has  been  provided  with  a  proper  water  supplj^  of  14,000  gal- 
lons capacity,  the  plumbing  in  the  building  has  been  careful!}'  over- 
hauled, cement  floors  laid  in  the  kitchen  and  in  the  dining  room  for 
natives,  the  roofs  repaired,  and  the  old  buildings  renovated  in  many 
other  particulars  too  numerous  to  mention.  The  building  for  the 
bureau  of  government  laboratories  is  now  practically  inclosed,  and  will 
be  ready  for  occupancy  by  May  next.  Five  small  houses,  a  75-stall 
stable  for  serum  cattle,  and  400  running  feet  of  shelter  for  animals 
used  for  scientific  purposes  have  been  constructed  for  the  use  of  the 
serum  institute.  The  civil  hospital  has  been  furnished  with  septic 
tanks  and  1,200  feet  of  12-inch  pipe  laid  to  connect  them  with  the 
estero  of  Sampaloc.     For  the  insular  cold-storage  and  ice  plant  a  cot- 


TOO  UEPORTS    OF    THE    CIVIL    GOVERNMENT 

tag-o  for  tho  cno-incer,  a  harness  shop,  dispensary,  and  quarters  for 
employees,  and  a  stable  for  18  horses  have  been  erected.  Galvanized- 
iron  tanks  to  <»ive  a  suilioient  water  sup})ly  have  been  installed  at  the 
bureau  of  public  printing,  and  the  premises  have  been  inclosed  with  a 
fence  of  brick  and  iron.  A  stable  with  storage  rooms  for  feed,  har- 
ness, wag'ons,  and  farm  implements,  and  a  water  tower  and  tank  litted 
with  a  gasoline  engine  and  pump  for  irrigation  purposes,  have  been 
completed  for  the  bureau  of  agriculture  at  its  experiment  station  near 
Singalong.  The  building  occuined  by  the  bureau  of  coast  guard  and 
transportation  has  been  thoroughly  renovated,  furnished  with  new 
water  tanks,  repainted,  and  rewired  for  electric  lighting. 

The  ayuntamiento,  like  many  other  government  buildings,  after 
many  3'ears  of  neglect  fell  into  such  a  state  of  disrepair  that  the  gov- 
ernment was  compelled  to  expend  $5,020.39  in  order  to  preserve  the 
structure  and  put  it  in  proper  condition.  Among  other  things  the 
building  has  been  completely  rewired  to  comply  with  city  ordinances, 
the  roof  has  been  renewed  in  many  places,  stairways  taken  out,  addi- 
tional rooms  provided,  and  the  decayed  wooden  flooring  on  the  ground 
floor  removed  and  tiling  substituted.  The  half -finished  hospital  build- 
ing purchased  by  the  city  of  Manila  from  private  parties  has  been 
strengthened  and  remodeled  to  meet  all  the  purposes  of  a  modern 
city  hall.  In  addition  to  all  this  work,  repairs  and  additions  have 
been  made  to  the  exposition  buildings,  the  timber-testing  laboratory, 
the  intendencia  })uilding,  the  Malacaiian  Palace,  and  the  Santa  Poten- 
ciana  building.  Appropriations  have  been  made  for  stables  for  the 
transportation  in  charge  of  the  insular  purchasing  agent,  for  a  new 
vault  for  the  insular  treasury,  for  the  machine  shops  and  warehouses 
for  the  bureau  of  coast  guard  and  transportation,  for  an  agricultural 
college  building  at  La  Carlota,  for  workshops  at  Bilibid  prison,  for  13 
coal  sheds  at  the  various  coast-guard  coaling  points,  for  a  new  paper 
warehouse  at  the  bureau  of  public  printing;  and  it  is  expected  that  the 
bureau  of  architecture  and  construction  of  public  buildings  will  be 
kept  reasonably  busy  during  the  time  which  yet  remains  of  the  present 
fiscal  5'ear. 

The  expenditures  actually  made  by  the  Bureau  during  the  year  end- 
ing August  31,  1903,  are  as  follows: 

Salaries  and  wages $23,  796.  51 

Contingent  expenses 2, 442. 11 

Transportation 986.  28 

Building  supplies  and  laborers 54, 183. 55 

Public  printing  office 1, 998. 12 

Government  laboratories 24,  690. 48 

Treasury  vaults 10,  250.  26 

Exposition  buildings 6,  524.  27 

Insular  cold-storage  and  ice  plant 18,  414.  62 

New  custom-house 64,  910.  85 

Old  custom-house 7,  601.  32 

Casemates  and  buildings,  constabulary 327.  79 

Bureau  of  agriculture 2,  576.  32 

Semaphore  signal  station 734. 29 

Malacanan  Palace 1, 150.  00 

Storeroom  and  offices,  bureau  of  architecture 8, 212. 05 

Lumber  yard,  bureau  of  architecture 1, 600. 00 

Forestry  bureau 300.  00 

Shed  for  insular  purchasing  agent 204.  60 

Sanitarium  and  cottages,  Baguio,  Benguet 15,  878.  08 

Civil  hospital 1,  880.  80 

Intendencia  building 630. 00 


OF 


THE    PHILIPPINE    ISLANDS,    liHK)-19U3.  701 


Smallpox  Hospital,  board  of  health |2, 525. 00 

San  Lazaro  hospital  and  serum  institute,  hoard  of  health 5,  852.  8.3 

Temporary  laboratory,  calle  Iris 679.  90 

Temporary  laboratory  and  serum  station 1,  200.  00 

Agricultural  and  industrial  school,  Baguio 491. 14 

Board  of  health  morgue  and  crematory 3,  618.  32 

Coast  guard  and  transportation 798.  59 

Total  actually  expended 264,  458. 08 

Due  and  unexpended: 

Claim  of  Albert  Bryan t 6, 149.  79 

Henry  D.  Woolfe 265. 50 

Campbell 9,663.53 

La  Electricista 550. 00 

Supplies  from  United  States,  not  delivered 30,  729.  91 

Deficiency  appropriation - 1, 317.  79 

Total  due  and  unexpended 48, 676.  52 

Appropriated  for  public  works  and  maintenance  of  public  buildings 321,225,79 

Work  done  by  bureau $59, 914.  34 

Work  done  by  contracts 127,  566.  94 

Turned  into  general  fund 5,  000. 00 

Loss  to  appropriation  account,  changes  in  rate  on  money  and 

property 3,  675.  29 

Paid  insular  purchasing  agent  for  property 41, 076. 61 

237,  233. 18 

Balance  of  appropriation  for  public  work  and  maintenance  of  pub- 
lic buildings 83,992.61 

Total  amount  appropriated  for  bureau 350, 430.  79 

Total  actually  expended $264,  458.  08 

Due,  but  not  expended 48, 676.  52 

Total  expended  and  incurred ■ 313, 134. 60 

Balance  of  appropriations  to  credit  of  bureau 37,  296. 19 

For  additional  information  concerning  the  work  completed  and  now 
in  progress  by  the  bureau  of  architecture  and  construction  of  public 
buildings,  reference  is  made  to  Exhibit  B,  hereto  attached  and  made 
a  part  of  this  report. 

BUREAU   OF    PUBLIC   PRINTING. 

This  bureau  is  organized  not  only  to  do  the  printing  work  of  the 
government,  but  also  to  give  to  Filipino  young  men  a  thorough  course 
of  instruction  in  the  printing  and  allied  trades. 

The  American  force  employed  is  65,  and  is  made  up  of  the  public 
printer,  40  instructors,  4  clerks,  3  copyholders,  1  foreman  in  charge 
of  la])orers,  2  checkers  and  assistants  in  warehouse,  1  cutter,  and  -4 
watchmen.  One  hundred  and  fifty-seven  Filipinos  are  also  employed, 
of  whom  4  are  clerks,  25  are  craftsmen,  33  arc  junior  craftsmen,  44  are 
apprentices,  27  are  helpers,  17  are  laborers,  and  7  are  messengers  or 
drivers.  Besides  the  permanent  force,  1  American  instructor,  1 
American  copyholder,  4  Filipino  craftsmen,  13  Filipino  junior  crafts- 
men, 1  Filipino  apprentice,  and  6  Chinese  carpenters  are  temporarily 
emploved. 

Act"  No.  650,  enacted  on  March  3  of  this  year,  gave  authority  to 
the  bureau  to  employ  as  many  apprentices  as  might  be  permitted  by 

2.3181—04 45 


702  UF.roTlTS    OF    THE    CIVIL    OOYKRNMENT 

the  seci'otarv  of  public  instruction,  and  made  provision  for  the  payment 
of  a  small  compensation  to  such  apprentices  as  mioht  be  en<>-a<ifed. 
The  ai)prentices  are  obliged  to  take  a  civil-ser\'icc  examination,  and  arc 
divid(Hl  into  six  classes.  Original  appointments  are  made  to  the  sixth 
class,  and  the  term  of  service  and  rate  of  compensation  in  each  of  the 
classes  are  as  follows: 


Class. 

Term  of  service. 

Daily  compensa- 
tion. 

20  cents  gold. 

Fifth 

At  least  6  months 

30  cents  gold. 

40  cents  gold. 

Tliinl 

At  least  <>  montlis 

fiO  cents  gold. 

80  cents  gold. 

At  least  6  months 

110  cents  gold. 

The  promotion  or  reduction  of  an  apprentice  from  one  class  to 
another  is  in  tlie  discretion  of  the  public  printer  and  is  based  on  the 
civil-service  efficiency  and  rating  of  the  apprentice.  The  whole  term 
of  apprenticeship  is  three  years,  on  the  completion  of  which  the 
apprentice  is  rated  as  a  junior  craftsman.  Each  native  craftsman  in 
the  bureau  at  the  end  of  three  years' honest,  faithful,  satisfactory,  and 
continuous  service  is  entitled  to  receive  extra  compensation  as  follows: 
Ten  cents  for  each  full  day  served  at  a  dail}^  wage  of  not  less  than  60 
cents,  20  cents  for  each  full  day  served  at  a  dail}'  wage  of  not  less  than 
$1.20,  and  30  cents  for  each  full  day  served  at  a  daily  wage  of  not  less 
than  iil.60;  provided,  however,  that  one  year's  accumulated  exti'a  com- 
pensation may  be  paid,  on  approval  of  the  secretary  of  public  instruc- 
tion, at  the  conclusion  of  two  years'  continuous  service.  The  time 
served  l)y  native  craftsmen  as  second-class  and  lirst-class  apprentices 
is  counted  as  a  part  of  the  three  3^ears'  continuous  service  for  which 
extra  compensation  is  allowed.  The  rules  of  the  printing  office  require 
all  apprentices  and  junior  craftsmen  to  attend  night  schools,  and  any 
willful  disobedience  of  the  regulation  results  in  the  separation  of  the 
offender  from  the  service.  At  first  some  of  the  American  instructors 
were  not  disposed  to  lend  their  aid  in  instru  ting  apprentices,  but 
prompt  disciplinary  measures  and  a  frank  expression  of  the  purpose 
of  the  government  to  make  a  specialty  of  teachir.g  young  Filipinos 
useful  trades  brought  about  a  change  of  sentiment  and  a  correspond- 
ing progress  in  the  work  of  fitting  apprentices  and  otheis  for  every 
branch  of  the  printer's  trade. 

The  4-1:  apprentices  now  in  the  service  are  assigned  as  follows:  Com- 
posing room  8,  bindery  11,  press  room  14,  foundry  6,  photo- engrav- 
ing room  4,  power  plant  1.  Two  apprentices  have  been  advanced  to 
class  4  and  14  to  class  6. 

The 
June  30, 

and  the  cost  of  opers  .        ,  .  ^,        , 

excess  of  uroduct  over  cost  of  operation.  Deducting  ^12,000,  rental 
value  of  the  premises,  and  $14,150.66,  10  per  cent  for  deterioration  of 
the  equipment,  the  net  excess  would  be  $24,236.64.  Eemaley's  scale 
of  values  for  printing  is  less  than  the  price  paid  for  printing  and  bind- 
ing by  the  civil  and  military  governments  to  commercial  houses  prior 
to  September  15,  1901. 

The  following  table  shows  the  value  of  the  printing  and  binding  and 
other  work  done  by  the  bureau  for  each  department  of  the  govern- 


OF    THE    PHILIPPINE    ISLANDS,    1000-1903.  703 

inent  and  others  during-  the  fiscal  year  IDOo,  the  printed  stock  on  hand, 
the  sahiries  and  wages  paid,  the  stock  and  other  supplies  expended, 
the  charges  for  freight,  transportation,  etc.,  the  total  value  of  equip- 
ment, the  estimated  deterioration,  the  allowance  made  for  rental  value 
of  premises,  and  excess  of  product  over  total  cost  of  production: 

Statement  showing  cost  of  operating  the  bureau  of  public  prinling  during  the  fiscal  year 
1903  as  compared  with  the  p)Toduct. 

CREDITS. 

Printing  and  binding  authorized  by  civil  gov- 
ernor ( Requisition  A ) |50,  218.  75 

Work  for  other  than  civil  government 4,  655.  21 

$54,  87.3.  96 

Printing  and  binding  authorized  by  tlie  Secretary  of — 

Interior  (Requisition  B) 15,727.61 

Commerce  and  police  (Requisition  C) 20, 401. 10 

Finance  and  justice  (Requisition  D) 97,  775.07 

Public  instruction  (Requisition  E) 29,  618.  65 

Printing  for  bureau  of  public  printing  (sec.  9, 

Act  296 ) 1 ,  4(J6.  J  5 

31,024.80 

Printed  stock  on  hand  June  30,  1903 1,  628.  05 

Miscellaneous  receipts  for  other  than  printing  and  binding.  529.  51 

Total  product $221,  960. 10 

DEBITS. 

Salaries  and  wages 115, 444. 02 

Printing  paper  expended 29,  927.  19 

Supplies  other  than  printing  paper  expended. . .     21, 098.  98 

51,026.17 
Additional  charges  (freight,  transportation,  in- 
surance, etc.,  and  insular  purchasing  agent  10 

per  cent) 5, 102. 61 

56,128.78 

171,572.80 

Excess  product 50, 387.  30 

Fair  wear  and  tear  on  the  equipment: 

Paid  by  Jester,  1902 124, 182.  75 

Paid  by  Jester,  1903 12,  385. 25 

Paid  to  insular  purchasing  agent,  1902 2, 932. 32 

Paid  to  insular  purchasing  agent,  1903 2, 006.  31 

Total  equipment 141 ,  506. 63 

10  per  cent  for  fair  tear  and  wear 14, 1 50.  66 

Allowance  for  rent 12, 000. 00 

26, 150.  66 

Excess  product  over  all 24, 236.  64 

Th(^  printing  done  under  tlie  heading  "civil  governor"  includes  all 
printing  done  for  the  Philippine  Commission  ($8, 21)2. 75),  the  executive 
bureau  ($18,042.35),  the  ]*hilii)pine  civil-service  board,  the  insular 
purchasing  agent,  the  office  of  the  improvement  of  the  port,  the  expo- 
sition board,  the  Benguet  wagon  road,  and  the  city  of  Manila,  with  all 
its  various  departments. 

The  printing  done  for  the  department  of  the  interior  includes  that 
done  for  the  office  of  the  secretai-y  of  the  interior,  the  board  of  health 
for  the  Philippine  Islands,  the  (juarantine  servi('(%  the  forestry  bureau, 
the  mining  bureau,  the  weather  bureau,  the  bureau  of  public  lands. 


704  KEi'oirrs  of  tiik  (Mvil  oovktjnmknt 

the  hiiivau  of  ji^riculture,  the  ethnolooiciil  survey,  the  o-ovcviinient 
l!il)()nit(n"ie8,  the  eivil  hosjMtal,  ami  tlie  civil  sanitarium  at  l)eii<:;uet. 

The  ])rintiny  clone  for  thedepartnientof  coinnicrce  and  j)()lice  iuchides 
that  done  for  the  bureau  of  posts,  the  sional  service,  the  Philippines 
Consta))ularv,  the  bureau  of  prisons,  the  otlice  of  the  captain  of  the 
port,  the  bureau  of  coast  guard  and  trans])ortation,  the  coast  and 
g'eodetic  surve}',  and  the  bureau  of  enj^ineering. 

The  printino-  done  for  the  department  of  finance  and  justice  includes 
that  done  for  the  office  of  the  secretary  of  finance  and  justice,  the 
insular  treasurer,  the  insular  auditor,  the  customs  service  ($35,920.70), 
the  bureau  of  internal  revenue,  the  insular  cold-stora^-e  and  ice  plant, 
and  the  bureau  of  justice.  The  largest  item  in  the  printing  l)ill  of  the 
department  of  finance  and  justice  is  that  of  the  insular  treasurer 
('1^53,1-1:6.30).  This  is  due  to  the  fact  that  all  printing-  for  the  provinces 
and  municipalities  is  ordered  by  the  insular  treasurer,  who  is  charged 
with  the  value  of  the  product  and  makes  his  collections  through  the 
provincial  treasurers. 

The  printing  done  for  the  department  of  public  instruction  includes 
that  done  for  the  office  of  the  secretary  of  public  instruction,  the 
bureau  of  education,  the  bureau  of  architecture  and  construction  of 
public  buildings,  the  bureau  of  public  printing,  the  Ijureauof  archives, 
the  census  bureau,  the  official  gazette,  and  the  Philippine  museum  of 
ethnology,  natui'al  history,  and  commerce. 

For  further  details  as  to  the  work  of  the  bureau  of  public  printing 
reference  is  made  to  the  ver}^  complete  report  of  the  chief  of  the 
bureau  (Exhibit  C)  hereto  attached  and  made  a  part  of  this  report. 

BUREAU    OF    ARCHIVES,    INCLUDING    THE    BUREAU    OF    PATENTS,    COPY- 
RIGHTS,   AND   TRADE-MARKS. 

The  working  force  allowed  to  the  bureau  of  archives  is  made  up  of 
1  chief  of  bureau,  at  $3,000  per  annum,  1  clerk  at  $1,600  per  annum,  2 
clerks  at  $1,400  per  annum  each,  1  clerk  at  $600  per  annum,  2  clerks 
at  $480  per  annum  each,  1  clerk  at  $360  per  annum,  1  clerk  at  $300  per 
annum,  3  clerks  at  $240  per  annum  each,  and  two  employees  at  $150 
per  annum  each. 

The  personnel  allowed  to  the  bureau  of  patents,  copj^rights,  and 
trade-marks,  which  was  placed  under  the  immediate  direction  of  the 
chief  of  the  bureau  of  archives  by  an  act  of  the  Commission  dated 
April  <S,  1903,  is  made  up  of  1  clerk  at  $1,400  per  annum,  1  clerk  at 
$1,000  per  annum,  1  clerk  at  $600  per  annum,  and  1  employee  at  $150 
per  annum. 

The  bureau  of  archives  is  still  engaged  in  the  examination  and  classi- 
fication of  5,000  volumes  of  records,  documents,  and  papers  filed  by 
the  different  branches  of  the  government  during  the  Spanish  regime. 
This  work  has  been  interrupted  by  four  removals  of  the  bureau,  and 
the  consequent  confusion  and  disorder  resulting  therefrom  has  greatly 
increased  the  exacting  labor  of  classification  and  orderly  arrangement. 

Under  and  l)y  virtue  of  act  No.  496,  enacted  November  6, 1902,  the 
notarial  protocols  of  all  the  notaries  in  the  islands,  comprising  2,251 
bound  volumes,  have  been  filed  with  the  bureau.  In  view  of  the  fact 
that  during  the  insurrection  many  papers  evidencing  title  to  property 
wer(^.  lost,  and  not  a  few  registries  of  titles  destroyed  with  all  they 
contained,  these  protocols  are  now  records  of  the  first  importance,  and 
the  duty  of  preser\ing,  verifying,  and  arranging  them  for  conveni(>nt 
reference  demands  the  greatest  attention  and  care.     Patent,  trade- 


OK    THE    PHILIPPINE    ISI^NDS,    1900-1903.  705 

mark,  trade-name,  and  cop3'rig-ht  papers  are  now  filed  in  tlie  bureau 
of  archives,  and  it  is  contemplated  by  the  proposed  corporation  law  to 
make  the  bureau  the  file  repository  of  all  corporate  documents  and 
records.  When  the  law  requiring-  the  registry  of  marks  and  brands 
of  large  cattle  is  put  in  operation  the  responsibilities  of  the  office  will 
be  further  increased. 

Almost  since  the  inception  of  civil  government  there  has  been  more 
or  less  dispute  between  the  civil  and  the  military  authorities  as  to  the 
ownership  and  right  of  possession  of  certain  lands  and  properties 
wathin  the  municipal  jurisdiction  of  the  city  of  Manila.  In  view  of 
these  difierences  the  honorable  the  civil  governor  directed  the  chief  of 
the  bureau  of  archives  to  carefully  examine  the  records  in  his  posses- 
sion and  to  make  a  full  and  complete  report  of  all  documents  and 
papers  touching  the  title  to  the  lands  and  properties  in  dispute.  The 
chief  of  the  bureau  has  made  a  most  careful  investigation  of  the  whole 
matter  and  has  submitted  a  special  report  as  to  the  ownership  of  the 
"Arroceros  "  and  the  "Aguadas"  properties,  which  w^ere  more  par- 
ticularly the  subjects  of  contention.  This  report  accompanies  the 
generaf  report  of  the  chief  of  the  bureau. 

The  expenditures  of  the  bureau  of  archives  for  the  year  ending 
August  31,  1903,  amount  to  |9, 167.21  United  States  currency,  and  the 
receipts  to  the  sum  of  §439.22  United  States  currency,  being  fees 
received  for  copies  of  documents  and  certificates  of  correctness  in 
accordance  with  the  act  of  the  Commission  dated  March  3,  1903. 

The  bureau  of  patents,  copyrights,  and  trade-marks,  placed,  as  above 
stated,  under  the  direction  of  the  chief  of  the  bureau  of  archives,  dur- 
ing the  year  ending  August  31,  1903,  received  the  sum  of  $1,176.85 
for  the  tiling  of  applications  for  patents,  copyrights,  and  trade-marks, 
and  (expended  the  sum  of  $1,080  for  necessary  clerical  assistance  and 
running  expenses. 

For  further  and  more  detailed  information  concerning  the  bureau  of 
archives  and  its  work  spet^ial  reference  is  made  to  Exhibits  D  and  D  1 
hereto  attached  and  made  a  part  of  this  report. 

AMERICAN    CIRCULATING    LIBRARY. 

The  American  Circulating  Library  Association  of  Manila  was  estab- 
lished in  the  spring  of  1900,  and  by  means  of  gifts  of  books  and  without 
any  considerable  expenditure  of  money  on  its  part  was  ena))led  to  estab- 
lisii  a  library  of  10,000  volumes.  The  primary  object  of  the  library 
association  was  to  furnish  to  soldiers  and  sailors  in  the  Philippines  and 
to  American  residents  in  the  city  of  Manila  entertaining  reading  and 
the  means  of  ol)taining  useful  knowh^lge  during  their  leisure,  hours. 
In  March,  1901,  it  was  found  that  the  expense  of  maintaining  tiie 
libi'ary  was  somewhat  greater  than  the  resources  of  the  association 
would  permit,  and  as  a  result,  in  conformity  with  the  law  enacted  by 
tlie  Commission  for  the  purpose,  the  institution  was  transferred  to  the 
government  for  the  uses  and  purposes  for  which  it  was  founded.  In 
accordance  with  the  law  pioviding  for  the  transfer,  the  library  was 
placed  under  the  control  of  a  board  of  trustees  consisting  of  5  mem- 
bers, wlio  were  charged  with  the  care  and  custody  of  the  books  and 
pioperty  of  the  libi-ary,  the  duty  of  providing  necessary  (juai'ters  for 
its  accommodation  and  the  general  management  of  the  institution.  The 
libiary  may  now  be  regarded  as  a  public  circulating  library.     There 


70G  REPORTS    OF    THE    CIVIL    GOVERNMENT 

wove  oil  hand  21,750  l)Ooks  on  Auo-usI,  HI,  IWo,  of  wliicli  4,11()  were 
received  duriny'  the  year  cndiny'  on  tliat  date.  The  number  of  books 
issued  was  20,57t>,  and  the  nuiiil>er  of  new  cards  issued  4,7(>1. 

The  library  is  at  present  estal)lished  at  No.  70  calle  liosario,  from 
wliieh  phiee  it  is  proposed  to  transfer  it  to  more  conunodious  quarters 
in  the  Oriente  Building,  recently  purchased  by  the  government.  It 
is  not  expected,  however,  that  these  qujirtcrs  will  prove  adequate  to 
the  growing"  demands  of  the  library,  and  it  seems  certain  that  the 
government  will  be  compelled  to  erect  either  a  special  structure  for 
its  use  or  provide  proper  accommodations  for  it  in  a  nmseum  building, 
the  erection  of  which  has  been  suggested. 

The  following  is  a  statement  of  the  total  regular  appropriations  and 
regular  disbursements,  revenues,  andpett}"  expenditures  of  the  library 
for  the  fiscal  year  ending  June  30,  1903: 

Eegnlar  appropriations $7, 644. 98 

R('<riilar  disbursements , 6,  700.  75 

Revenues 2,  756.  9,3 

Petty  expenditures 702. 94 

It  is  provided  b}'  act  of  the  Commission  that  all  revenues  from  the 
library  shall  be  deposited  with  the  insular  treasurer  to  be  expended  for 
the  purchase  of  books  and  pamphlets  for  the  library. 

MUSEUM   OF   ETHNOLOGY,    NATURAL   HISTORY,    AND   COIVIMERCE. 

The  museum  of  ethnology,  natural  history,  and  commerce  was  estab- 
lished by  act  of  the  Commission  of  October  29,  1901.  The  museum 
created  by  this  act  was  placed  temporarily  under  the  immediate  direc- 
tion of  the  chief  of  the  bureau  of  non-Christian  tribes,  now  the 
ethnological  survey.  All  collections  made  by  the  museum,  as  well  as 
its  files  of  commercial  correspondence,  periodicals,  etc.,  together 
with  the  clerk  in  charge,  were  transferred  in  January  of  this  3'ear  to 
the  exposition  ))oard.  Since  that  time  all  collections  have  lieen  made 
with  a  view  of  aiding  the  exposition  board  in  making  a  proper 
Philippine  exhibit  at  the  exposition  to  be  held  at  St.  Louis  in  1904. 
It  is  provided  Ijy  act  of  the  Commission  that  on  the  conclusion  of  the 
St.  Louis  exposition  a  committee  designated  by  the  civil  governor 
shall  select  from  the  exhibits  owned  by  the  Philippine  government 
all  articles  which,  in  the  opinion  of  the  committee,  it  would  be  wise 
and  not  too  expensive  to  reship  to  Manila  for  use  in  a  permanent 
museum,  together  with  all  the  property,  effects,  and  exhil)its  of  the 
museum  of  ethnology,  natural  history,  and  commerce  shipped  to  St. 
Louis.  Several  exhibits  from  foreign  exporters  have  been  received  by 
the  commercial  museum,  including  one  sent  l)y  the  Japanese  Govern- 
ment filling  8<j  cases  and  valued  at  more  than  5,000  .yens,  which  has 
recently  arrived  and  is  now  in  possession  of  Mr.  Shile}^  the  clerk  in 
charge,  who  has  been  retransferred  from  the  exposition  board  to  the 
museum  for  duty.  Until  suita])le  quarters  are  provided  for  renting  or 
the  erection  of  a  suitable  museum,  those  exhibits  of  the  museum  which 
have  not  been  sent  to  St.  Louis  will  be  placed  in  the  Oriente  Building. 
It  will  be  necessary  for  the  government  to  provide  a  building  to 
acconnnodate  the  large  number  of  exhibits  which  will  be  retui'ned  to 
the  islands  for  the  purpose  of  creating  a  permanentinstitution.  Several 
scientific  gentlemen  connected  with  the  various  bureaus  of  the  govern- 
ment have  suggested  to  the  Commission  the  advisability  of  constructing 
a  proper  edifice  in  which  to  house  not  only  exhibits  representing  the 


OF    THE    PHILIPPINE   ISLANDS,   1900-1903.  707 

ethnology,  natural  history,  commerce,  industries  and  resources  of  the 
islands,  l)ut  also  the  circulating  and  reference  libraries  of  the  govern- 
ment. This  matter  has  been  submitted  to  the  Commission  and  is  now 
under  consideration. 

For  further  information  in  regard  to  the  museum,  special  reference 
is  made  to  the  report  of  Dr.  David  P.  Barrows,  marked  "Exhibit  E." 

BUREAU   OF   STATISTICS. 

The  operations  of  the  bureau  of  statistics,  established  in  September, 
1900,  were  practicall}^  suspended  from  March,  1901,  to  August  of  the 
present  year,  when  the  bureau  was  finally  abolished  by  P^xecutive 
Order  in  accordance  with  a  previous  act  of  the  Commission.  Mr. 
Manuel  Xerez  Burgos  continued  in  charge  of  the  office  until  its  aboli- 
tion, when  he  was  transferred  to  the  office  of  the  Official  (xazette.  Up 
to  the  time  of  his  transfer  Mr.  Burgos  was  engaged  in  the  compilation 
of  comparative  statistical  tables  of  the  population  of  the  islands  from 
information  ol)tained  from  the  principal  census  taken  during  the  Span- 
ish rule,  and  in  the  preparation  of  a  number  of  other  statistical  reports 
asked  for  by  officers  of  the  census  just  completed. 

CENSUS   BUREAU. 

Reference  to  the  establishment  of  this  bureau  was  made  in  the 
report  of  the  secretary  of  public  instruction  for  the  year  1902.  The 
census  was  taken  as  of  March  2,  1903,  in  accordance  with  the  procla- 
mation of  the  civil  governor  issued  in  pursuance  of  section  16  of  act 
No.  1:67  and  was  practically  completed  in  most  of  the  provinces  by 
April  15.  The  census  returns  began  to  arrive  in  Manila  about  JNIay 
1,  and  from  that  date  to  August  1  the  entire  office  force  was  engaged 
in  the  preliminary  examination  of  the  schedules,  which  were  shipped 
to  Washington  on  the'  U.  S.  army  transport  She7'wmi,  which  sailed 
from  Manila  on  August  20. 

In  the  prosecution  of  the  census  work,  the  provisions  of  the  census 
law  and  its  modifications  have  been  caref ull}'  followed,  and  it  is  believed 
that  the  data  collected  will  prove  of  much  interest  and  value  to  the 
Government.  As  no  compilations  of  the  data  collected,  except  a  rough 
count  of  the  population,  have  been  made,  it  is  not  practicable  to  give 
any  accurate  statement  of  the  returns  in  this  report;  neither  is  it  pos- 
si}*)le  to  make  an  accurate  statement  of  the  disbursements,  as  the 
accounts  of  all  the  disbursing  officers  have  not  as  yet  been  closed.  It 
can  ])('  said,  however,  that  the  total  expense  of  the  census  will  be  well 
within  the  sum  appropriated  for  the  fiscal  year  ending-  June  30,  1903, 
amounting  to  $681,689,  and  that  there  will  be  a  considerable  surplus. 

On  August  29, 1903,  it  was  provided  that  the  services  of  the  director 
of  the  census  in  the  compilation  and  tabulation  of  the  census  returns 
and  the  preparation  of  the  report  of  the  census  were  to  be  continued 
in  Washington  upon  the  same  terms  as  those  upon  which  he  served  in 
the  Philip|)ine  Islands,  and  that  the  two  assistant  directors  of  the  census 
were  also  to  l)e  contiiuicd  in  Washington  until  the  completion  of  the 
census  report  at  tlie  rat(i  of  $300,  United  States  currency,  per  month 
each.  The  compensation  of  these  assistant  directors  while  in  the 
Philippine  Islands  was  S720  per  month  each.  Authority  was  also  given 
to  the  director  of  the  census  to  take  with  him  to  Washington  as  his 
assistant  Lieut.  T.  B.  Taylor,  U.  S.  Army,  and  two  secretaries  upon 
the  same  terms  as  w(n-e  in  foi-ce  as  to  their  employment  in  the  Philip- 


708 


REPORTS    OF    THE    OTVTL    GOVERNMENT 


])ino  Islands.  Tliis  act  provided  rurthor  that  tlic  cliicr  (Acvk  and  dis- 
bursing- oliic'or  was  to  be  continued  in  ofliec  in  the  Pliilippine  Islands 
until  the  15th  day  of  November,  11)08,  for  the  purpose  of  .settling 
up  delayed  accounts  and  to  receive  and  forward  to  the  director  at 
Washington  schedules  and  other  documents  relating  to  the  census.  It 
was,  however,  found  necessary  to  extend  the  time  of  office  of  this 
officer  from  month  to  month  imtil  the  odds  and  ends  of  the  census 
work  in  the  islands  have  been  finally  finished,  in  view  of  the  fact  that 
he  found  it  impossible  to  complete  the  payment  of  enumerators  and 
special  agents  in  20  or  niore  provinces  by  November  15,  and  of  the 
further  fact  that  reports  froui  ditferent  sources  are  still  out  and  the 
mortuary  schedules  will  not  ])e  received  until  February  or  later,  and 
when  received  will  have  to  bo  verified,  classified,  corrected,  and  packed 
according  to  census  districts  and  nuuiicipalities. 

The  rough  count  of  the  population,  showing  Christian  and  non- 
Christian  inhabitants  separately,  is  as  follows: 


Province. 


Population. 


Christian. 


Non-Chri.s- 
tian. 


Total. 


Abra 

Albay  

Ambo.s  Camarines. 

Antique 

Basilan 

Bataan 

Batangas 

Benguet 

Bohol 

Bulacan 

Cagayan 

Capiz 

Cavite 

Cebu 

Cotabato 

Dapitan 

Davao 

Iligan 

Uoeos  Norte 

Iloco.s  Sur 

Uoilo 

Isabela  de  Basilan 
Isabela  de  Luzon . . 

Jolo 

Laguna 

La  Union 

Lepanto-Bontoc . . . 

Leyte 

Mackar 

Malabang 

Manila 

Marinduquo 

Masbate 

Mindoro 

Jlistiinis 

Negros  Occidental 
Negrcs  Oriental . . . 

Nueva  Eeija 

Nuova  Vizcaya 

Pampanga 

Pangasinan 

Paragua 

Rizal 

Romblon 

Samar 

Siasi  Group 

Sorsogon 

Surigao 

Tarlac 

Tawi-tawi  Group.. 

Tayabas ~. 

Zambales 

Zamboanga 


Total 


37, 830 

235, 798 

234, 090 

133, 716 

1,331 

44, 431 
258, 208 


268, 128 
222,551 
143, 419 
223, 560 
134,287 
656, 469 


17, 331 
20, 458 


177, 149 
171, 788 
403, 462 


69, 056 

1,273 

148, 840 

127, 966 

2,413 

386, 951 

83 


220, 553 

51,801 

44, 045 

35,294 

138, 327 

305, 743 

186, 397 

132, 267 

16, 073 

221,746 

397, 632 

28, 960 

146, 169 

52, 858 

265, 612 

297 

120, 123 

96, 714 

135, 397 


151,610 
100, 955 


13, 396 

632 

3, 528 

2, 733 


1,376 
'23,'023 


545 
13, 029 
5,729 


35, 107 
6,423 

45, 187 

13, 668 
2,169 
7,727 
5,078 

28, 858 
3,290 

50, 119 

77, 385 
8,946 

70, 466 


7,286 
21, 702 

1,045 

16,578 

670 

46, 493 

973 

3,145 
10,454 

2,208 


6, 967,  Oil 


24, 265 

41 

3,007 

1,161 

14,545 
2,163 
3,165 

23, 530 

605, 188 


51,226 

236, 430 

237, 618 

136, 449 

1,331 

45,807 

258, 208 

23, 023 

268, 128 

223, 096 

156, 448 

229, 289 

134, 287 

655, 469 

35,107 

23,754 

65, 645 

13, 6G8 

179, 318 

179, 515 

408, 540 

28, 858 

72, 346 

51,392 

226, 225 

136,912 

72, 879 

386,951 

33 

3,650 

220, 553 

51, 801 

44,045 

42, 580 

160, 029 

S06, 788 

202, 975 

132, 937 

62, 566 

222, 719 

400, 777 

39, 414 

148, 377 

52, 858 

266, 205 

24, 562 

120, 164 

98, 721 

136, 558 

14,545 

153, 773 

104, 120 

23, 530 

7, 572, 199 


OF    THK    PHILTPPINE    ISLAND?-,    1!)00-1C)03.  709 

THE    OFFICIAL   (JAZETTK. 

The  Official  Gazette  has  been  in  existence  a  little  more  than  one  year, 
having  l)een  estal)lished  b}^  act  of  the  Commission  on  September  2, 
li HJ2.  The  olfice  force  provided  for  the  Gazette  consists  of  an  editor 
at  $1,800  per  annum,  one  clerk  at  $720  per  annum,  two  clerks  at  $()00 
per  annum  each,  and  one  clerk  at  $300  per  annum.  It  is  printed  at 
the  Government  printing  plant  in  English  and  Spanish,  and  is  at  pres- 
ent issued  to  2,182  subscri}>ers,  of  whom  1,028  are  officers  of  the  insular 
government,  on  the  "free  list,"  989  provincial  and  municii:>al  govern- 
ments, and  1G5  private  persons.  Laws  of  the  Commission,  executive 
orders,  such  decisions  of  the  supreme  court  and  court  of  customs 
appeals  as  may  be  designated  b}^  the  judges,  proclamations  of  the  civil 
governor,  resolutions  of  the  Commission,  opinions  of  the  attorney -gen- 
eral, circular  letters,  orders,  notices,  etc.,  of  the  different  bureaus  are 
presented  to  the  subscribers  of  the  Gazette  within  a  week  after  they 
are  ready  for  publication.  The  price  of  the  Gazette  has  been  fixed  by 
law  at  $6  U.  S.  currenc}'  per  annum,  or  15  cents  per  single  copy. 
Provincial  and  municipal  governments  are  required  to  subscribe  for  at 
least  one  copy  weekh^  and  by  this  means  are  enabled  to  follow  more 
closely  the  operations  of  the  central  government.  On  March  5,  1903, 
the  editor  was  authorized  b}^  the  Commission  to  make  exchanges  of 
the  Gazette  with  similar  periodicals  with  a  view  to  collecting  and 
placing  on  reference  file  useful  information  on  political,  social,  and 
economic  questions,  and  a  number  of  publications  of  the  Orient  are 
now  received  regularly.  Extracts  from  reports  of  bureau  chiefs  and 
other  government  officials  on  different  subjects  of  interest  and  value 
to  provincial  and  municipal  officials  and  other  subscribers  will  be 
printed  from  time  to  time  in  the. Gazette.  The  Gazette  is  by  law  made 
a  part  of  the  public  records  of  each  provincial  and  municipal  govern- 
ment, so  that  in  each  municipalit}'  and  province  there  will  always  be  a 
continuous  record  of  necessary  information  for  ready  reference. 

The  following  are  the  appropriations  for  and  the  receipts  and  expend- 
itures of  the  Gazette  during  the  fiscal  year  ending  June  30, 1903: 

Amount  of  appropriations $3, 000. 00 

Receipts 3,  303.  76 

Expenditures 2,  704.  22 

The  total  cost  of  printing  the  Gazette  from  the  date  of  its  establish- 
ment to  June  30,  1903,  as  returned  by  the  public  printer,  was  $9,690. 
For  details  in  regard  to  the  Official  Gazette,  reference  is  made  to  the 
report  of  the  editor  attached  thereto,  marked  "Exhibit  F,"  and  made 
a  ])art  of  this  report. 
Respectfully  submitted, 

James  F.  Smith, 
Secretary  of  Public  Instruct  Urn. 


710  REPORTS    OF    THE    CIVIL    GOVERNMENT 


EXHIBIT  A. 

REPORT  OF  THE  GENERAL  SUPERINTENDENT  OF  EDUCATION  FOR  THE 
PHILIPPINE  ISLANDS  FOR  THE  PERIOD  SEPTEMBER  1,  1902,  TO  SEP- 
TEMBER 30,  1903,  WITH  ACCOMPANYING  REPORTS  AND  PAPERS. 

Aims  OF  PRIMARY  EDUCATION  IN  THE  PHILIPPINES. 

Manila,  P.  I.,  Sej^temher  15,  1903. 

Sir:  I  have  the  honor  to  submit  the  annual  report  for  the  bureau  of 
education  for  the  Philippine  Islands,  which  is  the  third  annual  report 
to  be  made  by  the  general  superintendent  since  the  introduction  of  an 
American  public-school  s_ystem  in  these  islands. 

Within  the  past  year  the  public  schools'  work  has  twice  suffered  the 
loss  of  a  general  superintendent.  In  December  last  Dr.  Fred  W.  Atkin- 
son, after  two  and  one-half  years'  service  in  this  capacity  and  after 
having  organized  the  public-school  system  practically  as  it  stands 
to-day,  resigned  his  position  in  order  to  return  to  the  United  States 
and  continue  there  his  profession  as  a  public  educator,  which  was  inter- 
rupted l)y  his  acceptance  of  duty  here.  He  was  succeeded  by  Dr. 
Elmer  B.  Bryan,  then  principal  of  the  Manila  Normal  School,  who,  to 
the  great  disappointment  and  regret  of  every  one  interested  in  educa- 
tion, was  obliged,  by  serious  ill  health,  to  resign  his  position  August 
13  last.  The  undersigned  was  appointed  to  succeed  him,  and  has  been 
in  charge  of  the  work  only  a  few  days  over  one  month. 
4ln  reviewing  the  history  of  the  islands  for  the  past  three  years,  one 
is  immediately  struck  by  the  great  emphasis  placed  upon  public  schools, 
first,  by  officei's  of  everj^  rank  of  the  United  States  Army  who  admin- 
istered this  Archipelago  during  the  first  two  years  of  American  sov- 
ereignt}^  and  subsequently  by  the  United  States  Philippine  Commission 
and  the  civil  government  of  the  islands.  This  emphasis  upon  the  pub- 
lic schools  is  undoubtedl}'  the  result  of  the  primary  importance  which 
the}"  pla}^  in  American  civilization  and  the  supreme  confidence  which 
Americans  feel  in  the  necessit}',  to  this  and  to  every  aspiring  people, 
of  a  democratic,  secular,  and  free-school  system,  supported  and  directed 
b}'  the  State.  It  has  resulted  that  the  school  system  of  these  islands  is 
the  most  tj-pically  American  institution  which  our  government  has 
here  established.  Spanish  precedents  and  previous  institutions  have 
Ijeen  followed  to  a  strikingl}^  less  degree  than  in  the  organization  of 
local  and  insular  administration,  the  constitution  of  the  courts,  or  any 
other  branch  of  administration. 

.  The  definite  purposes  in  introducing  this  educational  system  are 
unique  in  the  history  of  colonial  administration.  Professedl}^  openly, 
and  with  resolute  expectation  of  success,  the  American  Government 
avowed  its  intention  through  public  schools  to  give  to  every  inhabi- 
tant of  the  Philippine  Islands  a  primar}^,  but  thoroughly  modern  edu- 


OF    THE    rniLTPPINE    ISLANDS,   19()0-]9n3.  711 

cation,  to  thereby  lit  the  race  for  participation  in  self -government  and 
for  e^■ery  sphere  of  activity  oti'cred  ])y  the  life  of  the  Far  East,  and 
to  supplant  the  Spanish  language  by  the  introduction  of  P^nglish  as  a 
basis  of  education  and  the  means  of  intercourse  and  communication. 
Almost  as  impossible  as  such  great  results  may  have  looked  and  still 
look  to  the  outsider,  and  thoroughl}^  as  they  have  been  the  objects  of 
criticism,  the  Bureau  of  Education  and  the  Philippine  Government  is 
more  thoroughly  committed  to  this  polic}"  now  than  at  any  time  dur- 
ing the  past  live  j^ears,  i;^  more  certain  of  success,  and  is  almost  able 
to  demonstrate  by  the  results  already-  achieved  that  the  ends  early  set 
up  can  and  will  be  reached. 

It  is  the  general  character  and  reasons  for  this  sy^stem  of  primarj^ 
schools  which  I  wish  to  discuss  in  this  first  part  of  my  report. 
^-  Such  an  educational  plan  would  never  have  been  practicable  had  it 
not  been  in  fact  the  demand  of  the  Filipino  people  themselves.  Thor- 
oughly American  as  our  school  system  is,  it  represents  the  ideas  which 
theoretically  command  the  desires  of  the  Filipino.  His  request  was 
for  free,  secular  schools,  open  to  all  inhabitants  and  teaching  the 
English  tongue  and  the  elementary  branches  of  modern  knowledge. 
His  struggle  with  Spain  had  sufficed  to  convince  him  that  he  was 
limited  in  thought  and  action  by  a  medieval  system  which  is  no  longer 
recognized  as  of  binding  force  in  the  modern  world,  and  this  feeling- 
has  caused  his  prompt  acceptance  of  whatever  appeared  to  him  or  was 
presented  to  him  as  of  modern  type.  The  Filipino  is  essentially  a 
radical.  Contrary  to  what  has  been  stated  of  him,  he  is  one  of  the 
least  conservative  types  of  mankind.  In  readiness  to  seize  the  new, 
to  Avelcome  change,  and  in  ambitious  pride,  he  is  closer  to  the  Japanese 
than  any  other  nationality. 

The  last  half  century  of  Spanish  rule  brought  to  the  Filipino  people 
great  changes  that  made  possible  the  striking  revolutionary  events  of 
the  last  seven  years.  The  race  made  a  great  advance  between  1860 
and  the  end  of  the  century — an  advance  due  primarily  to  the  enlight- 
ened efforts  of  the  liljeral  element  in  Spanish  political  life.  The 
reactionary  policy  which  followed  the  fall  of  republican  government 
in  Spain  and  the  Cavite  revolution  of  1872,  which  aimed  to  sup- 
press the  rapidly  rising  ambitions  of  the  Filipino  people,  has  greatly 
obscured  the  intelligent  and  deserving  efforts  made  by  the  liberal  ele- 
mient  in  the  Spanish  administration  toward  developing  both  the  mental 
and  spiritual  interests  of  these  islands.  As  a  matter  of  fact,  for  nearly 
forty  years  Spain's  policy  in  these  islands  was  one  of  reform.  A  serious 
and  disinterested  policy  strove  to  remove  the  economic  hindrances 
which  had  so  long  checked  the  development  of  the  Archipelago,  and 
toeidighten  and  elevate  the  race.  We  see  the  first  of  these  changes 
in  the  opening  of  Manila  to  foreign  trade  in  18:^7.  This  was  the 
beginning  of  the  advancement  of  the  islands,  and  was  followed  l)y  the 
development  of  the  conmicrcial  products  which  have  made  the  Philip- 
l)iiies  famous — hemp,  tobacco,  sugar,  and  copra.  An  almost  uninter- 
rupted era  of  economic  prosperity  followed  down  to  the  end  of  Spanish 
rule.  The  Philipi)ines  received  many  governors  of  liberal  political 
ideas,  conspicuous  among  whom  was  Claveria,  184-1  to  1819.  From 
his  governorship  we  may  date  the  final  relief  of  the  islands  from 
Moro  piracy,  the  reform  of  Philippine  administration,  and  the  begin- 
nings of  the  great  changes  iji  the  aspirations  of  the  Filipino  people 
themselves. 


712  REPORT!^    OF    THK    CTVTL    (JOVERNTMENT 

~  l>ut  ol"  otiiial  iin])()i't;in(H'  with  uny  otlun*  change  was  the  opoiiino-  of 
odiu-ation  to  the  Filipino.  Previous  to  the  nruUllc  ol"  the  last  century 
there  was,  praetieally  speakino-,  no  (education  auion^'  the  Filii)iiH)s. 
The  famous  eoUeeiate  institutions  of  this  city,  which  (lute  almost  from 
the  foundation  of  Manila  itself,  were  desionod,  not  for  the  Filipino, 
but  for  the  children  of  the  Spaniard  and  mestizo.  'Education  in  the 
parishes  had  been  left  solely  to  the  direction  of  the  cura-parroco,  or 
village  friar,  and  was  limited  to  elementary  religious  teaching.  But, 
in  1800,  a  s^'stem  of  public  primary  instruction  was  established  ])y  the 
famous  Spanish  minister  of  war  and  colonies,  O'Donnell.A  A  primarj*^ 
school  for  boys  and  one  for  girls  was  decreed  for  each  pueblo  of  the' 
Archipelago.  In  these  schools  instruction  was  to  be  given  in  the  Spanish 
language.  A  superior  commission  of  education  was  formed,  consist- 
ing of  the  governor,  the  ai'clibishop,  and  seven  other  members  added 
by  the  governor  himself.  Spanish  plans  work  out  into  actual  results 
very  slowly,  and  it  took  years  to  fully  realize  the  ideas  which  appear 
in  these  tirst  orders  and  decrees,  but  at  the  end  of  Spanish  rule  prac- 
ticalU'  ever}"  pueblo  in  the  Philippines  had  its  two  public  schools  for 
boys  and  for  girls,  with  Filipino  teachers  who  had  been  educated  in 
the  Spanish  language  and  elements  of  knowledge,  and  on  ever}^  little 
plaza  or  town  square  there  stood,  along  with  the  tril)unal,  the  jail,  and 
the  far  more  pretentious  and  older  church  and  convent,  public  l)uild- 
ings  for  schools.  These  schools  by  no  means  conformed,  however,  to 
American  ideas  of  a  public  educational  system.  In  the  tirst  place,  they 
were  hopelessly  inadequate  to  give  enlightenment  to  the  entire  popu- 
lation. Filipino  pueblos  are  in  reality  townships  or  districts  that 
sometimes  extend  over  many  square  miles  of  country,  and  contain 
scores  of  small  hamlets  or  barrios  scattered  at  considerable  distances 
from  the  centro  de  poblacion.  It  does  not  seem  to  have  been  the 
Spaniards'  effort  or  intention  to  educate  the  children  of  these  obscure 
and  humble  hamlets.  Buildings  at  the  center,  while  sometimes  well 
constructed,  were  small  and  usually  employed  not  more  than  one  man 
and  one  woman  teacher.  Forty  to  60  pupils  in  each  is  certainly  not 
underestimating  the  school  attendance  in  the  towns  whose  population 
varies  from  8,000  to  20,000  souls.  The  result  was  that  these  schools 
gave  to  the  children  of  Filipinos  of  means,  who  could  afford  to  build 
and  maintain  homes  in  the  town  center,  an  opportunit}"  for  elementary 
education  and  a  preparation  to  pass  to  the  more  pretentious  colegios 
of  important  cities  and,  above  all,  of  Manila, 

The  result,  combined  with  the  economic  changes  that  were  taking 
place,  was  in  some  ways  unfortunate.  The  continually  rising  plane 
of  material  prosperity  which  followed  the  opening  of  foreign  com- 
merce and  the  development  of  new  commercial  products  was  par- 
ticipated in  b}'  onh'  one  class  of  the  Filipinos  themselves.  This  was 
the  old  ]3etty  aristocrac}^  the  class  known  ancientl}"  among  the  Tagalog 
as  the  "majarlica,"  who  became  under  the  Spanish  administration  the 
priucipales  of  the  pueblo  and  who  are  to-day  known  Ijy  such  quaint 
designations  as  "gente  ilustrada"  or  "pudientes."  This  class  it  is 
that  not  only  has  monopolized  the  great  gains  in  material  prosperity, 
but  such  enlightenment  and  education  as  well  as  the  race  has  gained. 
The  result  has  been  more  sharply  than  ever  to  divide  society  among 
the  Filipinos  into  two  Avcll-dift'erentiated  classes — a  very  small  number 
of  educated,  who  own  rich  haciendas,  buildings,  and  other  sources  of 
wealth,  who  live  in  bcautifullv  built  houses  arlorned  with  the  artistic 


OF    THE    PHILIPPINE    ISLANDS,    l!t(M>-l!l03.  7l3 

woods  of  the  islands,  who  speak  the  Spanish  language,  who  have  pos- 
sessed themselves  of  the  charm  and  grace  of  Spanish  manners,  and 
who  seldom  fail  to  attract  and  delight  the  guest  that  with  unfailing 
hospitalit}^  they  receive  into  their  homes.  This  class  is,  however,  but 
the  merest  fraction  of  the  race  itself — ten  to  a  dozen  families,  usuallj^, 
in  towns  of  from  ten  to  twent}'  thousand  people.  The  rest  of  the 
population,  the  tao,  have  been  left  in  an  unchanged  condition  of  igno- 
rance and  poverty,  and  their  dependence  upon  and  submission  to  the 
dominance  and  control,  both  economic  and  intellectual,  of  the  "gente 
ilustrada"  has  been  continually  accentuated  b}^  each  added  gain 
acquired  by  the  wealth}^  class. 

^In  the  second  place,  the  Spanish  school  system,  though  founded  and 
supported  by  the  Government,  was  never  secular  in  character.  The 
Spanish  friar,  who  was  the  pueblo  curate,  was  alwaj's  the  local  inspector 
of  the  school,  and  not  only  directed  its  conduct  Ijut  determined  the  sub- 
jects which  should  be  taught.  "In  the  brief  and  imperfect  course  of 
primar}^  instruction  which  was  given  in  these  little  schools  church  cate- 
chism, church  doctrine,  and  sacred  history  were  emphasized  almost  to 
the  exclusion  of  the  other  subjects  which  are  necessary  to  fit  the  Fili- 
pino child  for  his  position  in  life,  whether  it  be  humble  or  fortunate. 
This,  however,  was  not  the  sole  unfortunate  effect  of  this  arrangement. 
^  Whatever  may  be  said  in  praise  of  the  work  of  religious  orders  in 
these  islands,  it  can  not  be  denied  that  their  attitude  during  the  last 
fifty,  and  particularly  the  final  thirty  years  of  their  influence  here,  was 
excessivel}^  hostile  toward  the  enlightenment  of  the  Filipino.  They 
actively  sought  to  debar  the  Filipino  from  any  sort  of  modern  knowl- 
edge, from  gaining  a  position  of  independence  and  self-respect,  and 
from  entrance  into  any  kind  of  leadership  of  his  own  race.  It  was,  in 
fact,  this  obstructive  and  reactionary  policy  on  the  part  of  the  class 
that  most  immediately  afi'ected  their  lives  that  provoked  the  Filipino 
into  open  hostility  and  rebellion.  Thus,  while  we  find  much  to  com- 
mend in  the  public  school  system  established  by  the  excellent  O'Don- 
nell  over  forty  years  ago,  it  is  apparent  that  it  neither  gave  opportunity 
to  the  little  child  of  the  humble  fisherman  and  husl)andman,  nor  did  it 
lift  the  Filipino  toward  that  truth,  the  knowledge  of  which  makes  free. 

In  building  up  here  an  American  system  of  public  schools,  we  neces- 
sarily form  our  purposes  with  a  view  to  the  failures  of  the  past,  and 
this  previous  experience  compels  us  to  adopt  certain  ideals  which  may 
be  briefl}'  stated  at  this  point.    )^  . 

In  the  first  place,  American  schools  must  be  public  and  secular. 
Very  grave  doubts  were  at  first  entertained  whether  it  would  be  pos- 
sil)le  to  maintain  here  a  system  of  schools  which  did  not  give  religious 
instruction  and  which  did  not  place  dependence  upon  the  assistance  of 
the  Church.  The  government,  in  its  opening  ell'oris,  was  gravely 
advised  and  admonished  that  the  Filipino  would  support  no  form  of 
instruction  that  was  not  primarily  Roman  Catholic  in  character. 
'^There  has  been  no  case  of  greater  misrepresentation.  The  experiment 
of  secular  pul)lic  schools  in  these  islands  is  now  nearly  three  years 
old,  and  the  result  is  seen  that  the  Filipino  father,  while  with  few 
exceptions,  sincerely  desirous  that  his  child  shall  be  trained  in  a 
knowledge  of  those  religious  precepts  and  ceremonies  which  have  for 
centuries  formed  the  only  higher  life  of  the  great  mass  of  this  popu- 
lation, is  nevertheless  e(|ually  desirous  that  his  intellectual  advance 
should  be  unafi'ected  by  ecclesiastical  control,  and  that  the  instruction 


714  KKPORTS    <»K    THK    ('IVIL    (JOVERNMENT 

of  tho  cluin-li  shall  l)o  s(>p;u:ili'  from  thiit  of  the  school.  This  choice 
is  boconiiiiii,-  moio  niai'kcd  with  every  succeedino-  moiitli,  uiul  has  ])rac- 
tically  dom>  away  with  any  eti'ectivc  opposition  on  the  part;  of  church 
authority. 

In  the  second  place,  the  piililic  schools  of  these  ishmds  must  be  open 
to  all  upo4i  a  purel}'  democratic  ))asis.  This  is  a  point  in  wliich,  per- 
haps, there  has  ])een  more  difficulty  experienced  than  with  the  preced- 
ing*. The  cultivated  man  amont)-  the  Filipinos,  while  fairly  bursting" 
with  protestations  of  his  patriotic  solicitude  for  the  advancement  of 
his  more  humble  countryman,  is  in  reality  frequently  contemptuous 
of  their  illiteracy  and  poverty  and  actually  opposed  to  any  enlio-hten- 
ment  which  will  loosen  his  own  hold  over  them.  The  g-reatest  danger 
a.t  present  menacing  the  success  of  our  schools  is  that,  pleased  with 
the  capacity  and  cleverness  of  the  3^outh  of  the  cultivated  class,  and 
desirous  of  forwarding  his  success  along  the  higher  levels  of  educa- 
tion, we  may  forget  the  primary  and  essential  importance  of  educating 
the  child  of  the  peasant.  If  we  fail  here  we  will  fail  precisely  as  our 
predecessors  did.  The  public  welfare  and  public  security  demand 
here,  as  perhaps  nowhere  else  in  the  world,  primary  education  for  all 
classes.  The  race  lends  itself  naturally  and  without  protest  to  the 
blind  loadershii)  and  cruel  oppression  of  its  aristocracy.  This  is  what 
the  Spaniard  called  "caciquismo,"  and  which  every  measure  and  plan 
of  the  government  of  these  islands  should  aim  to  destroy. 

In  the  third  place,  and  as  a  necessary  corollary  to  the  above,  our 
public  school  system  should  be  adequate  to  the  population.  It  is  not 
so  at  tho  present  time.  We  have  only  begun  to  reach  the  population 
of  the  barrios.  We  have  succeeded  in  reestablishing  schools,  with 
perhaps  four  and  five  times  as  large  an  attendance,  in  the  town  centers 
where  the  Spaniards  conducted  them.  We  have  placed  these  schools 
on  an  English  basis,  but  we  have  not  yet  sufficiently  extended  this 
instruction  to  the  hamlets  and  little  settlements  which  lie  back  in  the 
w^oods  and  along  the  esteros,  sometimes  a  dozen  miles  from  the  center 
of  the  town.  It  is  in  these  rural  spots  that  the  great  mass  of  the  popu- 
lation finds  its  home.  These  are  the  centers  of  ignorance,  the  resorts 
and  recruiting  ground  for  the  ladrones,  and  they  perpetuate  the  igno- 
rance and  povert}'  of  the  race,  which  has  remained  constant  for  three 
hundred  ^xars.  i  The  greatest  need  of  our  schools  at  the  present  time 
is  Filipino  teachers  with  enough  knowledge  of  English  and  school 
methods  and  enough  missionary  spirit  to  go  out  and  labor  in  these 
barrios  under  the  supervision  of  an  American  teacher. 

The  Christian  population  comprises,  according  to  the  published 
results  of  the  recent  census,  nearly  7,000,000  souls,  or  nine-tenths 
of  the  entire  population  of  the  Philippines.  They  occupy,  however, 
hardl}^  more  than  three-sevenths  of  the  total  superficial  area  of  the 
Archipelago,  albeit  this  includes  nearl}^  all  of  the  fertile  coastal  plains 
and  river  valleys  and  the  greater  part  of  the  islands  susceptible  of 
much  agricultural  development  and  able  to  support  large  numbers. 

This  population  has  multiplied  ver}^  rapidly  within  recent  decades. 
The  development  of  productive  agriculture  and  export  trade  has  created 
a  rapid  increase  of  the  population  in  all  parts  of  the  islands  afi'ectedby 
this  material  prosperity.  The  Christian  population  is  three  times 
what  it  w^as  a  century  ago  and  fourteen  times  as  great  as  it  was  when 
the  Spaniards  first  Christianized  their  ancestors. 

As  is  well  known,  this   Christian   population,   while  of  common 


OF    THE    PHILIPPINK    ISLANDS,    1!MK)-1903.  715 

Malayan  origin  and  possessing  a  culture  in  most  respects  the  same,  is 
divided  into  a  considerable  number  of  tribes  or  nations  (to  use  the 
Spanish  term — naciones). 

vSo  much  has  been  written  and  affirmed  of  the  similarities  or  distinc- 
tions between  these  tribes,  and  the  subject  has  Ijorne  so  intimately 
upon  the  work  of  the  bureau  of  education,  that  a  Ijrief  statement  seems 
in  place  in  regard  to  these  dili'erent  groups  or  tribes  which  the  policy 
of  the  American  Government  fa\'ors  welding  into  one  nation  with  a 
common  language,  a  common  appreciation  of  rights  and  duties,  and  a 
common  patriotism  for  their  land  as  a  whole. 

Beginning  with  northern  Luzon,  the  valley  of  the  Cagayan,  as  far 
south  as  the  confluence  with  the  Magat,  and  the  lower  banks  of  the 
River  Chico  are  occupied  by  a  Christian  race  commonly  called  b}^  the 
Spanish  Cagayanes,  but  whose  dialect  for  the  most  part  is  Ibanag.  In 
southern  Isabela,  in  the  vicinity  of  the  town  of  Echague,  is  spoken 
another  dialect,  called  Yogad,  while  in  Nueva  Vizca3^a,  the  beautiful 
but  isolated  valley  of  the  river  Magat,  there  are  two  small  Christian 
tribes  whose  conversion  took  place  much  later  than  the  others,  and 
which  are  known  ])y  tribe  and  language  as  Gaddang  and  Is'inay.  A 
considerable  Iloko  population  has  in  recent  decades  made  its  way  into 
the  sparsely  settled  vallej^s  of  Cagayan  and  Magat,  but  these  colonists 
have  not  ordinarily  mingled  with  the  original  population,  but  continue 
to  live  in  separate  barrios  or  towns  and  preserve  in  its  purit}'^  their 
Iloko  tongue. 

The  narrow  plain  along  the  west  coast  of  northern  Luzon,  facing 
the  China  Sea,  is  inhabited  quite  entirely  by  Iloko  (or  Ilokanos). 
Formerly,  according  to  the  statements  of  the  Spanish  missionaries, 
who  first  reduced  this  language  to  writing  and  grammatical  form, 
there  was  great  diversity  of  vocabulary  between  separate  localities 
along  this  coast,  and  at  the  present  day  there  are  many  words  of  one 

Erovince  imintelligiblc  to  another,  Ilokos  Norte  seeming  to  lead  in  the 
ighest  developments  of  the  language  and  the  dialect  there  is  spoken  of 
b}^  the  more  southern  Ilokos  as  containing  many  terminos  prof  undos. 
The  central  plain  of  Luzon,  between  the  broken  mountains  of  the 
Caraballo  Sur  on  the  east  and  the  Zambales  Mountain  range  on  the 
west,  contains  in  small  area  a  ver}-  diverse  population.  In  the  north 
are  the  Pangasinan,  around  the  south  end  of  the  Gulf  of  Lingayen. 
Some  of  this  tribe  ha\'e  crossed  over  into  Zambales,  Init  the  groat  cape 
thrust  out  into  the  China  Sea  is  largely  occupied  by  another  Christian 
people,  speaking  a  ditt'erent  dialect,  called  Bolinao.  South  of  the 
Pangasinan,  through  the  province  of  Tarlac,  occurs  a  mixed  popula- 
tion of  llokano,  Pampanga,  and  Tagalog,  which  becomes  nearly  wholly 
TagJilog  as  we  go  eastward  into  Nueva  Ecija,  and  becomes  solidly 
Pampanga  as  we  come  south  on  to  the  lower  waters  of  the  great  I'iver 
of  this  name.  The  provinces  facing  Manila  Bay  are  all  'Fagalog,  as 
well  as  Batangas,  Tayabas,  and  part  of  the  Camarines.  The  Zambales 
coast  is  curiously  divided  between  Tagalog  colonists  on  the  south,  llo- 
kano and  Pangasinan  on  th.e  north,  and  a  small  population  of  uncertain 
derivation,  the  Zam))aleno,  in  the  center.  The  southern  end  of  Luzon, 
with  a  veiy  broken  coast — the  center,  perhaps,  of  the  hemp  industry — 
is  inhabited  by  Bikol.  Mindoro  has  a  sparse  population  in  scattered 
coast  towns  of  Tagalog.  In  the  central  islands  we  find  at  least  two 
very  different  dialects  of  Bisaya,  the  western,  called  Panayano,  spoken 
on  Panay  and  Negros,  and  the  eastern,  or  Cebuano,  spoken  on  the 


716  liKI'OUrs    (»K    TlllO    CIVIL    OOVKKNMEJMT 

isluncls  of  CV1)U.  lioliol,  Leyto,  aiul  Stuimr.  The  Christum  population 
of  tho  little  islands  of  the  C'alaniian  orou]),with  l^usuaiioa,  speak  a  sep- 
ai-ate  lan^uaue  called  Cuyuno  or  Calaniiaii.  Alono-  the  north  coast  of 
Mindanao  lli(>re  is,  in  scattered  towns,  a  relatively  small  po])ulatioii 
of  Bisaya,  who  also  extend  down  the  east  coast  and  arc  found  in  the 
very  old  iSpaiiish  settlements  of  Bislig-  and  Caraga;  but  here  there  is, 
in  addition,  a  considerable  Christian  population,  converted  in  the  last 
half  century  ])y  elesuit  missionaries  from  the  paoan  tribes,  known  as 
]\Iandaya.  "With  the  exception  of  the  small  Christian  settlements, 
recruited  mostly  from  Bisaya,  which  arc  found  in  southern  Mindanao 
at  Davao,  Cotabato,  Pollok*  and  Zaml)oanjjfa,  this  summary  includes,  I 
believe,  all  of  the  dift'erent  tribes  and  languages  which  were  christian- 
ized by  Spanish  nussionaries,  and  which  may  be  considered  to  form 
the  Filipino  people. 

The  ({ucstion  has  been  frequentty  raised  whether  these  Filipino 
languages  are  sufKciently  related  so  as  to  fuse  into  one  common  tongue, 
and  the  bureau  of  education  has  recei^'ed  its  most  vigorous  criticism 
in  the  United  States  because  of  its  alleged  attempt  to  supplant  and 
destroy  what  might,  in  the  opinion  of  absentee  critics,  become  a 
national  and  characteristic  speech.  Such  criticisms  could  only  proceed 
from  a  profound  ignorance  of  the  nature  of  these  languages  and  the 
people  who  speak  them.  All  of  these  dialects  belong  to  one  common 
Malayan  stock.  Their  grammatical  structure  is  the  same.  The  sentence 
in  each  one  of  them  is  built  up  in  the  same  way.  The  striking  use  of 
affixes  and  suffixes  which  gives  the  speech  its  character  is  common  to 
them  all.  There  are,  moreover,  words  and  expressions  identical  to 
them  all.  A  hundred  common  words  could  readily  be  selected  which 
would  scarcely  vary  from  one  language  to  another;  but  the  fact  still 
remains  that,  while  similar  in  grammatical  structure,  these  languages 
are  very  different  in  vocabulary — so  different  that  two  members  of  any 
two  different  tribes  brought  together  are  unable  to  converse,  or  at  tirst 
even  make  themselves  understood  for  the  simplest  steps  of  intercourse. 
The  similarity  in  structure  makes  it  very  easy  for  a  Filipino  of  one 
tribe  to  learn  the  language  of  another,  but  nevertheless  these  lan- 
guages have  preserved  their  distinctions  for  more  than  three  hundred 
years  of  European  rule  and  in  the  face  of  a  common  religion  and  in 
spite  of  considerable  migration  and  mixture  ])etween  the  different  tribes. 
This  is  as  true  where  different  populations  border  one  another  as  else- 
where. In  no  case  is  there  any  indication  that  these  languages  are 
fusing.  The  Filipino  adheres  to  his  native  dialect  in  its  purity,  and 
when  he  converses  with  a  Filipino  of  another  tribe  ordinariW  uses 
broken  Spanish.  These  languages  are  not  destined  to  disappear  or  to 
fuse,  nor  are  they  destined  to  have  a  literary  development. 

One  has  but  to  examine  the  literature  which  has  appeared  in  the  last 
fifty  years  in  each  of  these  tongues  to  see  how  unlikely  of  literary 
development  is  an}-  one  of  them.  The  masterpiece  of  Tagalog  litera- 
ture is  a  satirical  poem  entitled  "Ang  Salit  ;ing  Ikdiay  ni  Florante," 
which  was  composed  years  ago  by  a  Filipino  "  lilosofo"  named  Baltazar. 
It  was  his  professed  intention  in  writing  this  poem  t-o  use  the  Tagalog 
language  in  its  purity,  and  he  continually  strives  to  avoid  by  circumlo- 
cution the  introduction  of  words  derived  from  Spanish.  His  result  is 
not  a  success,  and  the  poem,  while  of  great  interest,  promises  little  for 
the  future  of  a  Tagalog  literature.  For  common  intercourse,  as  well 
as  for  education,  the  Filipino  demands  a  foreign  speech.     To  confine 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  7l7 

him  to  Ills  native  dialect  would  be  simply  to  perpetuate  that  isolation 
which  he  has  so  lonj^  suffered  and  against  which  his  insurrection  was  a 
protest.  Opponents  of  English  education  find  no  sjnupathizer  among 
the  Filipino  people.  The  movement  seems  to  be  limited  for  its  sup- 
port to  academic  circles  and  partisan  periodicals  of  the  United  States 
and  to  the  Congressional  halls  of  the  nation.  The  advantage  which  the 
possession  of  the  English  language  will  give  him  is  readily  understood 
b}^  the  Filipino,  and  it  is  fortunate  that  the  acquisition  of  the  Spanish 
tongue  was  largely  denied  him  and  that  it  never  won  his  affection. 
English  is  the  lingua  franca  of  the  Far  East.  It  is  spoken  in  the  j^orts 
from  Hakodate  to  Australia.  It  is  the  common  language  of  business 
and  social  intercourse  between  the  different  nations  from  America 
westward  to  the  Levant.  It  is  without  rival  the  most  useful  language 
which  a  man  can  know.  It  will  be  more  used  within  the  next  ten 
3'ears,  and  to  the  Filipino  the  possession  of  English  is  the  gateway  into 
that  busy  and  fervid  life  of  commerce,  of  modern  science,  of  diplomac}^ 
and  politics  in  which  he  aspires  to  shine. 

Knowledge  of  English  is  more  than  this — it  is  a  possession  as  valu- 
able to  the  humljle  peasant  for  his  social  protection  as  it  is  to  the  man 
of  wealth  for  his  social  distinction.  If  we  can  give  the  Filipino  hus- 
bandman a  knowledge  of  the  English  language,  and  even  the  most 
elemental  acquaintance  with  English  writings,  we  will  free  him  from 
that  degraded  dependence  upon  the  man  of  influence  of  his  own  race 
which  made  possible  not  merely  insurrection  but  that  fairly  unpar- 
alleled epidemic  of  crime  which  we  have  seen  in  these  islands  during 
the  past  few  years. 

From  my  own  personal  observation  and  conversation  with  men  of 
wide  experience  in  the  events  of  recent  years  I  believe  it  is  safe  to 
S'cij  that  in  the  majority  of  murders  committed  during  the  last  five 
years  the  murderers,  ignorant  and  debased  tools,  acted  from  no  other 
motive  than  that  they  were  told  ])y  those  to  whom  they  were  econom- 
ically bound  and  dependent  that  they  must  go  and  kill  such  and  such 
men.  There  is  no  remedy  for  this  state  of  society  or  for  caciquisimo 
generally  except  the  enlightenment  and  moral  training  of  this  great 
ignorant  mass  of  the  Filipino  people. 

Another  form  which  criticism  frequently  takes,  not  alone  in  the 
United  States  but  among  Americans  in  these  islands,  is  that  in 
giving  the  Filipino  this  primary  education  we  are  impairing  his 
usefulness  as  a  productive  laborer,  separating  him  from  agriculture 
and  the  trades,  making  every  schoolboy  ambitious  to  become  an 
escribicnte,  and  filling  their  minds  generall}^  with  distaste  for  rural 
life  and  contact  with  the  soil.  This  is  a  charge  which  merits  careful 
examination  and  which  leads  to  some  observation  upon  the  societ}^  and 
industry  in  the  Philippines  which  this  government  in  the  prosecution 
of  its  high  ])iirposcs  nuist  consider,  American  investors  and  promot- 
ers in  tlie  Philippines  at  the  present  moment  are  deeply  disgusted 
with  the  Filipino  as  a  laborer  and  are  clamorous  for  the  introduction 
of  Chinese  coolies.  They  claim  that  the  Filipino  hates  and  despises 
labor  for  itself,  will  not  keep  a  laboring  contract,  and  can  not  be 
procured  on  any  reasonable  terms  for  various  enterprises  in  which 
Americans  desire  to  invest  effort  and  money.  "When,  however,  we 
look  a  little  more  closely  into  the  demands  of  these  men,  it  is 
apparent,  that  what  they  really  want  here  is  a  great  body  of 
unskilled  labor,  dei)endent  for  living  upon  its  daily  wage,  willing  to 
23181—04 46 


718  REPORTS    OF    THE    CTYTL    GOVERNMENT 

work  in  o-roat  S'aiif^s,  submissive  to  the  rouoh  liandlino-  of  a  "boss," 
and  roadv  to  loavc  homo  and  family  and  go  anywhere  in  the  islands 
and  to  hibor  at  day  wages  uncUn'  conditions  of  hours  and  methods  of 
labor  set  by  their  foreign  employers.  In  other  words,  what  they  really 
want  is  the  proletariat,  that  social  class,  the  outcome  of  recent  economic 
changes  in  Europe  and  America,  which  it  is  the  ideal  aim  of  political 
economists  to  elevate  and  absorb,  until  it  shall  disappear  again  in  the 
ranks  of  independent  and  self-respecting  labor. 

Now,  the  Filipino  detests  labor  under  these  conditions.  It  is  prob- 
ably time  that  he  will  not  work  in  a  gang  under  a  "boss,"  subjected 
to  conditions  of  labor  which  appear  to  him  unnecessarily  harsh  and 
onerous.  And  looking  at  the  matter  in  a  broad  sense,  I  am  not  sure 
but  that  those  who  have  this  people's  welfare  most  at  heart  may  con- 
gratulate the  Filipino  on  this  state  of  mind.  Give  him  a  piece  of  land 
to  cultivate,  especially  if  he  can  be  assured  that  it  is  his  own,  let  him 
choose  for  his  labor  the  cool  dark  hours  of  the  early  dawn  and  evening, 
let  him  work  in  his  own  way,  unharassed  by  an  overseer,  and  the 
Filipino  will  make  a  fairly  creditable  showing  as  a  laborer.  We  must 
recognize  these  preferences  of  his.  1  believe  we  should  accept  them  and 
should  seek  to  develop  here  in  the  Philippines,  not  a  proletariat,  but 
everywhere  the  peasant  proprietor.  Unfortunately,  conditions  are 
unfavorable  in  many  parts  of  the  islands  to  small  land  holdings. 
Propert}^  exists  in  great  haciendas  or  the  estates  of  the  religious  orders 
and  the  population  are  dependent  tenants.  But  it  is  the  intent  of  this 
government  to  purchase  or  secure  these  great  properties  for  the  benefit 
of  a  peasantry  who  live  upon  them,  and,  in  spite  of  delay  in  settle- 
ment of  this  essential  matter,  I  believe  we  may  look  upon  it  as  one  of 
those  pressing  necessities  in  which  the  American  Government  will, 
eventually,  have  its  way.  Wherever  we  find  the  Filipino  the  pos- 
sessor of  his  own  small  holding  there  we  find  him  industrious  and  con- 
tributing largely  to  the  productive  industry  of  the  islands.  I  have  in 
mind  one  beautiful  little  valley  in  the  Ilokano  country,  famous  for  the 
quality  of  its  tobacco,  where  the  land-tax  collections  showed  a  year 
ago  2,200  small  independent  properties  in  a  single  municipality. 

Now  it  is  with  this  peasant-proprietor  class  particularly  in  mind, 
and  trusting  in  the  outcome  of  our  efforts  to  greatly  increase  this  class, 
that  we  must  lay  out  our  course  of  primary  instruction.  If  he  has  his 
small  home  and  plot  of  ground,  the  possession  of  English,  the  ability 
to  read,  the  understanding  of  figures  and  those  matters  of  business 
which  affect  him,  and  even  the  knowledge  of  other  lands  and  peoples  will 
not  draw  him  from  his  country  life  and  labor.  It  will,  I  hope,  increase 
his  contentment  as  it  increases  his  independence,  and  as  it  raises  his 
standard  of  life  and  comfort  and  increases  his  desires  it  will  make  him 
a  better  producer  and  a  larger  purchaser.  Just  now  his  mind  is  influ- 
enced by  the  evil  example  of  his  past  instructors,  who,  while  they 
taught  him  much  that  was  good,  taught  him  also  that  labor  was  vile. 

But  this  attitude  toward  bodily  labor  which  so  disgusts  Americans 
with  the  wealthy  and  more  cultivated  class,  appears  to  be  not  a  racial 
feeling,  but  a  result  of  Spanish  training.  If  we  look  at  those  Malayan 
tribes  w^hich  escaped  the  Spanish  civilization — the  Igorrotes  in  the  north 
and  the  Moros  in  the  south — we  find  that  the  man  skillful  with  tool  and 
cunning  of  hand  enjoys  additional  reputation.  Mohammedanism  has 
never  despised  the  artisan  or  the  tradesman,  and  this  may  somewhat 
account  for  it,  but  anyway  in  Mindanao  and  Sulu  one  constantly  finds 


OF    THE    PHILIPPINE    ISLANDS,    1900-1903.  7 19 

that  even  the  dato,  or  petty  king,  ma}'^  be  a  famous  forger  of  weapons 
and  spend  many  hours  each  day  beside  his  anvil  and  bellows.  I  have 
in  mind  a  salip,  or  religious  leader,  on  the  island  of  Basilan,  whose  fame 
is  widespread  as  a  builder  of  boats.  These  facts  should  encourage  us 
to  hope  for  a  change  of  attitude  on  the  part  of  the  people  toward 
learning  and  practicing  manual  trades,  even  though  at  the  present 
time  such  teaching  has  met  little  favor  with  the  Filipinos,  the  .young 
elegante  of  Manila  disdaining  to  soil  his  lingers  with  the  grip  of  a  tool. 
For  detailed  report  upon  the  present  condition  and  success  of  the 
school  work,  I  have  the  honor  to  refer  to  the  report  of  the  assistant  to 
the  general  superintendent  and  to  the  reports  of  the  division  superin- 
tendents, which  are  appended  hereto.  Inasmuch  as  I  have  so  recently 
returned  again  to  educational  work,  I  have  preferred  to  let  their 
accounts  of  progress  and  present  conditions  form  the  report  upon  these 
matters,  and  will  here  do  no  more  than  briefly  summarize  the  situation 
a§  it  stands  to-day. 
^c  The  latest  reports  obtainable  from  the  provinces  show  that  we  have 
about  2,000  primary  schools  in  operation.  These  employ  the  services 
of  about  3,000  Filipino  teachers.  Instruction  is  given  wholly  in 
English.  The  only  books  used  are  English  texts,  and  the  teaching 
approximates  American  methods.  The  subjects  taught  are  English 
language,  primary  arithmetic,  and  primary  geography,  with  supple- 
mentaiy  reading  in  Philippine  and  American  histor}^,  and  in  elementary 
human  physiology.  About  150,000  children  are  to-day  receiving  instruc- 
tion in  these  schools.  Schoolhouses  are  crowded  to  the  very  limits  of 
health  and  efficiency,  and  Filipino  teachers  are  teaching  on  an  average 
of  40  pupils. 

-  Yet  how  far  we  are  from  attaining  universal  primary  education  may 
be  seen  by  comparing  the  above  enrollment  with  the  probable  school 
population  of  a  million  and  a  half  in  the  Christianized  provinces.  The 
essentials  for  increasing  the  scope  of  our  education  are  more  school 
buildings,  especially  barrio  schools,  and  a  much  larger  force  of  Filipino 
teachers  with  some  English  training.  The  poverty  of  municipalities, 
due  to  the  afflictions  under  which  this  country  is  still  suffering,  retards 
the  building  of  new  schoolhouses  and  necessarily  limits  the  present 
extension  of  our  work.  School  funds  are  made  to  go  just  as  far  as  can 
be,  but  reports  come  in  from  ever}^  part  of  the  islands  stating  that 
municipal  resources  arc  exhausted,  I  believe  it  will  be  advisable  for 
the  insular  government  to  gradually  take  over  the  payment  of  the 
nativ^e  teachers,  relieving  the  municipality  of  this  burden  and  allowing 
municipal  funds  to  go  exclusively  toward  the  erection  and  the  equip- 
ment of  municipal  school  buildings. 

-  The  second  condition  which  necessarily  retards  the  extension  of  our 
educational  system  is  the  fact  that,  in  spite  of  the  emphasis  which  has 
been  laid  from  the  l)oginning  upon  the  training  of  Filipino  teachers 
and  their  instruction  in  English,  the  supply  of  young  men  and  young 
women  ecpiipped  for  even  tne  most  primar}^  work  of  instruction  is  far 
too  small.  This  lack  is  being  met  in  every  possil)lc  way — by  daily 
instruction  on  the  part  of  the  American  teacher,  not  only  of  the  Filipino 
teachers  working  under  his  supervision,  ))ut  also  of  classes  of  candi- 
dates for  teacher's  appointment  or  aspirantes;  by  normal  institutes 
held  in  all  provinces  last  year,  whose  importance  will  be  still  further 
emphasized  this  coming  spring;  by  the  work  of  the  Manila  Normal 
School,  which  contains  to-day  an  enrollment  of  over  400  well-advanced 


720  REPORTS    OV    TllK    ClViJ.    OoVKKNMENT 

pupil.s;  ami  by  spociul  empluisis  upon  noriuiil  tniiiiinjj;-  in  the  35  pro- 
vincial hU^h  sciiools.  To  properly  cover  the  field  we  need  a  force  of 
about  iO,(>0(>  Filipino  primary  teachers  and  at  least  four  times  the 
amount  of  schoolroom  space  tiiat  we  at  present  possess.  This  would 
make  ])ossible  the  primary  instruction  of  ()00,000  Filipino  children, 
and  this  would  i;ive  to  every  cliild  in  the  Christian  population  of  the 
islands  the  advantaoe  of  four  years  of  primary  instruction,  to  be 
secured  between  the  ages  of  (5  "and  14.  I  should  consider  this  the 
attainment  of  our  laroc  pur])oso,  namely:  Universal  primary  instruc- 
tion for  the  Filipinos  of  all  classes  and  every  community. 

During-  the  last  year  high  schools  have  been  organized  in  every 
school  division.  The  appended  list  shows  their  number,  location, 
teaching  force,  and  enrollment.  These  schools  have  met  the  warm 
support  of  the  people,  particularly  the  more  wealthy  and  educated 
classes,  who  regard  attendance  at  an  esquela  superiora  or  colegio  as 
prima  facie  evidence  of  belonging-  to  the  ilustrada.  The  organization 
of  these  schools,  while  not  actually  called  for  l)y  the  completion  on 
the  part  of  large  numbers  of  students  of  the  primary  course,  was 
necessary  and  justifiable  on  the  ground  that  the  Filipino,  in  order  to 
support  the  primary  school,  had  to  see  before  him  the  opportunity  for 
higher  education  in  the  English  language.  The  same  consideration 
further  urges  us  to  complete  the  educational  system  in  the  Philippine 
Islands  by  the  organization  of  undergraduate  (collegiate  courses  and 
the  opening  of  schools  of  professional  training,  so  that  there  may  be 
presented  to  the  Filipino  a  complete  public  school  system,  beginning 
with  the  primary  schools  and  leading  by  successive  courses  to  the 
completion  of  a  profession. 

The  statistics  upon  the  American  teachers  show  that  our  present 
force  is  now  reduced  to  723— a  number  200  less  than  was  employed  a 
5'ear  ago  last  spring,  previous  to  the  organization  of  the  high  schools 
which  have  this  year  drawn  from  the  rural  work  at  least  150  American 
teachers.  Thus,  every  division  feels  at  the  present  time  a  lack  of 
American  instructors.  We  should  not,  I  believe,  aim  to  raise  the 
number  to  the  maximum  point  of  1,000,  but  at  least  850  are  needed  in 
order  to  adequately  supply  the  demand  and  will  be  needed  for  several 
years  longer,  until  the  Filipino  teacher  becomes  himself  competent  to 
guide  the  instruction  and  discipline  of  the  schools  of  his  municipality. 

It  is  with  great  regret  that  1  have  to  report  the  death  of  14  American 
teachers  within  the  last  year.  Their  names  appear  in  the  brief 
necrology,  which  is  appended  hereto.  Medical  attendance,  which  was 
adequate  two  years  ago,  when  the  Army  was  occupying  a  great  numl)er 
of  military  posts  and  had  a  very  large  force  of  surgeons  in  tlae  field,  is 
now  very  much  diminished.  Action  on  the  part  of  the  civil  govern- 
ment is  necessary  to  supply  the  present  dearth  of  hospitals,  nurses, 
and  physicians. 

The  assignment  of  these  American  teachers  has  been  very  unevenly 
made,  as  will  appear  by  an  examination  of  appendix.  The  city  of 
Manila  has  the  maximum  number  of  teachers,  65,  or  one  teacher  for 
every  3,432  of  the  native  population.  Leyte  and  Samar,  on  the  other 
hand"^,  have  no  more  than  one  teacher  for  27,000  inhabitants;  Bohol  has 
only  one  teacher  for  24,000,  and  Cebu  one  teacher  for  every  21,000, 
A  successful  basis  would  seem  to  be  one  American  teacher  for  about 
7,000  of  the  native  population.  More  and  more,  however,  the  Ameri- 
can teachers'  duties  will  have  to  be  those  of  a  supervising  teacher  and 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  721 

instructor  of  Filipino  teachers.  Some  single  American  teachers  have, 
at  the  present  time,  town  or  towns  ag-gregating-  30,000  people  scattered 
in  a  score  or  more  of  hamlets  and  barrios.  For  further  details  of  the 
work,  attention  is  again  invited  to  the  appended  reports  of  superin- 
tendents of  divisions. 

Very  respectfully  submitted. 

David  P.  Barrows, 
General  Super  hitendent  of  Education. 

The  Secretary  of  Public  Instruction, 

Manila,  P.  I. 


INAUGURAL  ADDRESS 


BY 


HON.    LUKE    E.    WRIGHT, 

CIVIL  GOVERNOR  OF  THE  PHILIPPINE  ISLANDS, 
Manila,  P.  I.,  Febrcary  1,  1904. 


My  fellow-countrymen : 

In  formally  assuming'  the  office  of  civil  governor  of  the  Philippine 
Islands,  following  the  custom  which  obtains  in  the  United  States,  I 
deem  it  proper  briefly  to  refer  to  existing  conditions  and  to  outline 
in  a  general  waj"  the  governmental  policies  which,  in  my  judgment, 
should  control  in  the  future.  It  is  peculiarly  appropriate  on  this 
occasion  because,  under  the  Spanish  regime,  as  I  am  informed,  a 
change  of  governors-general,  as  a  rule,  indicated  a  reversal  of  policies 
theretofore  obtaining  and  a  large  change  in  the  administrative  person- 
nel all  along  the  line.  This  being  the  usual  course  in  the  past,  it  is 
natural  that  the  Pllipino  people  should  attach  more  than  ordinary 
importance  to  a  change  of  administration.  It  seems  to  me  desirable, 
therefore,  at  the  earliest  opportunity  to  emphasize  the  fact  that  the 
wise,  humane,  and  patriotic  principles  which  controlled  the  admin- 
istration of  Governor  Taft  will  not,  at  least  consciously,  be  departed 
from  by  me. 

THE    CrVTL   commission;   policy   of   attraction;   RESULTS. 

The  Commission  came  to  these  islands  bearing  a  message  of  peace 
and  good  will  from  the  American  people  to  the  Filipino  people.  The 
instructions  which  President  McKinley  gave  us  were  definite  and 
explicit  and  were  made  known  to  us  ])efore  we  left  the  United  States. 
We  assumed  tlie  responsible  duties  with  which  he  had  honored  us, 
fully  understanding  their  tenor  and  assenting  to  their  wisdom  and 
justice.  Whatever  diflerences  of  opinion  may  exist  as  to  the  sound- 
ness of  the  polic}^  enunciated  in  these  instructions,  there  can  be  none 
auKJiig  conscientious  and  honora1)le  men  that  we  were  and  are  fully 
committed  to  their  execution.  We  understood  fully  that  while  oppo- 
sition to  American  authority,  when  it  took  tlie  form  of  an  armed 
insurrection,  must  be  met  and  put  down  by  the  military  forces  of  the 
United  States;  at  the  same  time  we  realized  with  expuil  clearness  that 
a  true  peace  could  only  l)e  established  by  ol)taining  the  confidence  and 
cooperation  of  the  educated  and  patriotic  Filipinos.  We  further 
beruned  that  it  was  true  Amei-ican  docti'ine  that  the  people  aflected  by 
government  should  have  as  large;  a  participation  in  that  government 

723 


724  REPOETS    OK   THE    CIVIL    OOVERNMENT 

as  they  were  capable  of  safely  exercising  in  their  own  interests,  and 
that  the  fullest  opportunity  should  bo  given  them  to  test  their  abilities 
by  actual  participation  in  the  administration  of  their  own  affairs.  It 
was  not  believed  to  be  either  just  or  politic  to  impose  upon  them  a 
government  modeled  strictly  upon  American  lines  and  administered 
wholly  by  Americans. 

Acting  upon  these  general  principles,  Governor  Taft  and  his  col- 
leagues, from  the  beginning,  have  endeavored  to  pursue  a  policy  of 
attraction,  and  at  every  step  have  invited  and  welcomed  the  advice 
and  assistance  of  those  Filipinos  Avhom  they  believed  competent  to  l)e 
of  service  in  establishing  good  government  here. 

It  is  not  my  purpose  to  glorify  the  work  which  has  been  already 
accomplished  by  Governor  Taft  and  the  Commission.  The  future 
must  largel}"  determine  whether  we  have  wrought  well  or  badl}^ 
We  perhaps  stand  too  near  to  the  stirring  events  which  have 
thronged  the  years  of  American  occupation  of  these  Islands  to 
judge  dispassionatel}'  the  value  of  what  has  been  accomplished. 
The  substitution  of  American  theories  of  government  and  methods 
of  administration  for  those  which  had  obtained  for  hundreds  of 
years  under  the  Spaniards  has  been  carried  on  with  the  characteristic 
energy  which  is  the  distinguishing  feature  of  the  American.  And 
naturally  there  have  arisen  differences  of  opinion  as  to  the  wisdom  of 
our  course  not  only  among  observing  foreigners  and  Americans  but 
among  Filipinos  as  well.  There  are  not  wanting  critics  in  the  former 
class  who  think  the  Commission  has  gone  too  fast  and  too  far;  and,  on 
the  other  hand,  there  are  not  wanting  impatient  Filipinos  who,  forget- 
ful of  what  has  already  been  done,  complain  that  we  are  moving  too 
slowly.  This  is  not  the  occasion  nor  am  I  the  proper  person  to  dis- 
cuss, upon  their  merits,  these  differences  of  opinion.  That  we  have 
made  mistakes  I  shall  not  controvert.  The  man  or  men,  however,  who 
do  not  make  mistakes  are  only  those  who  accomplish  no  serious  or  per- 
manent work.  I  think,  however,  we  may  justly  claim  at  least  the  bene- 
fits of  good  intentions  and  honest  efforts.  It  seems  to  me,  furthermore, 
that  when  a  comparison  is  made  between  the  situation  as  it  existed  three 
years  and  a  half  ago  and  as  it  exists  now,  even  the  least  observant  or  the 
most  censorious  must  be  struck  with  the  marvelous  change  for  the  bet- 
ter. Then  there  was  a  blaze  of  insurrection  extending  from  one  end  of 
the  Archipelago  to  the  other;  to-day  general  peace  prevails.  Then  life 
and  propert3Mvere  only  secure  in  those  towns  garrisoned  by  American 
troops,  who  occupied  several  hnndred  stations;  to-day  the  number  of 
our  troops  has  been  reduced  by  more  than  three-fourths,  occupy  only 
a  few  strategic  points,  and  yet  with  the  exception  of  the  occasional 
depredations  committed  here  and  there  by  insignificant  and  fugitive 
bands  of  ladrones  life  and  property  are  as  secure  in  these  islands  as  in 
other  well-ordered  conmiunities.  I  do  not  for  a  moment  pretend  that 
this  gratifying  change  has  resulted  wholly  from  the  labors  of  the 
Commission.  Unquestionably  in  the  mere  suppression  of  insurrection 
the  chief  credit  is  due  to  the'  efi'orts  of  our  gallant  Army  and  Navy. 
But  I  think  I  may  say,  without  the  imputation  of  egotism  or  the  desire 
to  unduly  exalt  the  Commission,  that  but  for  its  efforts  to  establish  in 
the  minds  of  the  intelligent  and  thoughtful  Filipinos  a  conviction  as 
to  the  rectitude  and  benevolence  of  the  intentions  of  the  American 
people  with  reference  to  them,  and  thereby  securing  in  a  multitude  of 
instances  their  cordial  and  zealous  cooperation  in  the  establishment  of 


OF    THE    PHILIPPINE    ISLANDS,   1900-1903.  725 

peace  and  order,  these  gratifjnng  conditions  would  not  now  exist.  We 
nave  reposed  trust  and  confidence  in  many  Filipinos,  and  it  is  but  sim- 
ple justice  to  sa}^  that  rarely  has  that  trust  and  confidence  been  a1)used. 
To-da}^,  pursuant  to  legislation  enacted  by  the  Commission,  the  Fili- 
pinos have  in  all  their  local  afl^airs  self-government,  as  Americans 
understand  that  term.  They  are  largely  represented  upon  the  Com- 
mission, in  the  judiciary,  and  in  all  other  branches  of  the  government. 
They  constitute  the  bod}^  of  the  constabulary  who  have  been  for  the 
past  two  3"ears  charged  with  the  dut}'^  of  maintaining  order  and  have 
done  and  are  doing  most  faithful  and  efficient  service.  The}^  have  the 
benefits  of  a  comprehensive  civil-service  law  which  applies  equally  to 
them  as  to  Americans.  A  public  school  system  has  been  created  and 
is  being  steadily  extended  with  satisfactory  results.  When  it  is  con- 
sidered that  so  much  has  been  accomplished  among  a  people  alien  to 
us  in  traditions,  customs,  and  languages,  1  think  I  may  fairly  say,  in 
the  first  place,  that  we  have  not  wrought  wholly  in  vain;  and  in  the 
next  and  most  important  place,  that  it  furnishes  striking  evidence  of 
the  adaptaliilit}"  and  capacity  of  the  Filipinos  and  warrants  us  in 
entertaining  high  hopes  for  their  future. 

FUTURE  work;   RAILROAD  BUILDING;    AGRICULTURE. 

But  it  is  not  my  purpose  to  deal  further  upon  this  subject  nor  to 
produce  the  impression  by  what  has  already  been  said  that  the  condi- 
tions which  obtain  in  these  islands  to-day  are  ideal  in  character.  Real 
work,  both  for  the  American  and  the  Filipino  lies  in  the  future.  Up 
to  this  time  we  have  been  going  through  what  may  be  aptly  termed  a 
period  of  political  reconstruction.  While  there  has  not  even  as  yet 
been  a  perfect  adjustment  on  the  part  of  the  people  to  the  new  order 
of  things,  as  I  have  already  shown,  we  have  made  substantial  prog- 
ress in  the  right  direction.  From  this  time  forward  our  labors 
must  mainl}^  be  toward  the  consolidation,  elal)oration,  and  making 
permanent  that  which  we  have  estal)lished,  and  the  building  up  and 
developing  the  natural  resources  of  the  islands.  Our  first  and  most 
obvious  need  is  an  improved  method  of  intercommunication  among 
the  people.  We  especially  must  labor  to  begin  an  era  of  railroad 
building  for  Luzon,  Mindanao,  and  several  of  the  large  islands  of  the 
Archipelago.  I  do  not  underestimate  the  value  of  schools  and  other 
agencies  of  modern  civilization  which  lead  the  masses  of  the  people  to 
higher  levels  of  living  and  thinking,  ])ut  to  my  mind,  so  far  as  con- 
cerns these  people,  nothing  is  of  so  nuich  moment  to  them  as  rail- 
roads. While  without  them  nmch  may  be  done,  yet  any  progress 
must  be  slow,  halting,  and  unequal.  With  them  we  may  not  only 
hope  for  but  confidently  expect  rapid  and  tremendous  improvement. 
As  matters  stand,  except  along  that  part  of  the  coast  line  of  the 
islands  accessible  to  vessels,  there  is  practically  no  incentive  oftered  to 
labor  or  production.  Having  no  markets  the  inha))itants  only  seek  to 
produce  enough  to  meet  their  sinipk\st  wants.  Agriculture  under  such 
circumstances  is  i)r-imitive  in  character  and  exceedingly  limited  in 
extent.  The  mineral  r(>sources  of  the  islands  remain  undeveloped,  and 
vast  forests  of  valuable  timber,  ahnost  unexploi'cd  and  wholly 
untouched,  exist.  It  is  only  within  a  con)parat  ively  recent  period  that 
we  hii\e  boeii  in  a  position  to  grant  Iranchises  for  the  construction  of 
railroads  and  other  works  of  internal  improvement.     We  have  always 


726  REPORTS    OF   THE    CIVIL    GOVERNMENT 

reooo-nizcd.  however,  the  vital  importance  of  the  matter  and  have  from 
time  to  time  in  our  reports  broui>ht  the  .subject  to  the  attention  of  the 
authorities  at  Washing-ton.  When  in  that  city  hist  winter  I  had  occa- 
sion to  discuss  this  matter  with  the  President  and  the  then  Secretary 
of  ^^'ar,  Mr.  Root.  Both  of  them  1  found  to  be  fully  alive  to  our 
needs  in  this  regard.  The  latter  arranged  several  interviews  with 
prominent  capitalists  and  railroad  builders  in  the  United  States  look- 
mg  to  the  inauguration  of  a  large  railroad  system  in  these  islands,  and 
I  am  informed  that,  notwithstanding  the  enormous  pressure  of  other 
lousiness  incident  to  his  position,  he  has  continued  to  urge  upon  capi- 
tjilistsat  home  the  advantages  of  investment  in  railroads  in  these  islands. 
While  it  is  somewhat  premature  to  speak  detinitely,  1  feel  much  encour- 
aged in  the  belief  that  in  the  not  remote  future  we  may  hope  for  sub- 
stantial benefits  as  the  result  of  his  efforts.  And  now  that  Governor 
Taf t  has  succeeded  him  we  have  a  right  to  feel  doubly  sanguine  in  this 
regard,  for  his  colleagues  know,  as  perhaps  few  can  know,  how  near 
to  his  heart  lies  the  prosperity  and  happiness  of  these  people. 

The  importance  of  developing  agriculture  can  not  be  overestimated. 
The  people  have  been  sorely  afflicted  in  the  last  two  years  by  the 
destruction  of  their  crops  by  locusts,  and  to  a  large  extent  the  loss 
of  their  horses  and  cattle  b}'  rinderpest.  Through  the  liberality  of 
the  American  Congress  a  large  sum  was  placed  at  the  disposal  of  the 
insular  government  to  replace  the  cattle  thus  lost  and  to  aid  and  pre- 
vent, as  far  as  possible,  suffering  among  the  people.  This  fund  has 
to  a  considerable  extent  been  expended  in  the  building  of  important 
highways  and  in  the  construction  of  other  important  public  works, 
thus  f  ui"nishing  a  means  of  livelihood  to  the  people,  especially  in  those 
sections  most  seriously  afi'ected  by  the  loss  of  crops  and  cattle,  and 
also  in  the  purchase  of  carabaos.  It  has  not  in  the  past  been  nor  will 
it  in  the  future  be  the  policy  of  the  Government  to  extend  aid  to  the 
point  of  pauperizing  the  people,  but  only  to  relieve  their  actual 
necessities  by  enabling  them  to  earn  money  by  their  labor.  In  a 
number  of  the  provinces  in  which  rice  has  heretofore  been  the  princi- 
pal crop,  the  people  have  been  recently  blessed  with  a  bountiful  yield 
of  that  cereal.  Owing  to  a  lack  of  cattle  there  still  remains  fallow, 
however,  a  considerable  area  of  land  formerly  cultivated.  As  a  result 
the  importation  of  rice  will  still  be  necessarj^,  though  not  to  such  an 
extent  as  last  year.  It  should  be  our  endeavor  to  inci'ease  the  pro- 
duction of  this  necessity  of  life  by  every  means  in  our  power,  at 
least  to  the  point  of  making  the  islands  self-supporting  in  this  regard. 
The  introduction  of  American  agricultural  machinery  and  methods  of 
cultivation  is  very  desirable,  and  will  be  of  immense  benefit.  The 
sugar  and  tobacco  interests,  I  regret  to  say,  are  in  a  depressed  and 
languishing  condition.  While  what  I  have  said  as  to  rice  production 
applies  with  almost  ecj[ual  force  to  them,  and  much  may  and  must  be 
done  for  their  betterment  by  the  insular  government,  still  the  fact 
reiuains  that  we  can  not  hope  for  any  real  advance  in  these  industries 
until  they  are  given  entrance  to  the  markets  of  the  United  States 
upon  equitable  terms,  and  for  this  boon  we  can  only  appeal  to  the 
Congress.  Even  were  this  granted,  several  years  must  elapse  before 
the  sugar  and  tobacco  planters  of  these  islands  could  hope  to  produce 
as  much  as  prior  to  the  insurrection,  nor  so  long  as  the  introduction  of 
Chinese  and  other  contract  labor  is  prohibited  as  at  present,  and  as 
doubtless  it  will  be  permanently,  is  there  the  slightest  danger  of  Phil- 


OF   THE    PHILIPPINE    ISLANDS,   1900-1903.  727 

ippine  exportation  of  these  articles  injuriously  affecting  prices  to 
producers  in  the  United  States.  I  entertain  the  confident  hof)e  and 
belief  that  Congress  will  not  long  hesitate  in  removing  the  insur- 
mountable tariff'  barriers  which  now  bar  the  way  to  the  entrance  of 
these  important  products. 

THE    FRIAR   LANDS. 

Among  the  last  important  official  acts  of  Governor  Taft  was  the 
conclusion  of  preliminary  contracts  for  the  purchase  of  what  is  known 
as  the  ''friar  lands."  As  soon  as  the  necessary  examination  of  titles 
and  survey  of  these  estates  can  be  made,  final  conveyance  will  be  given 
and  these'  lands  taken  over  by  the  Government.  They  will  then  be 
immediately  offered  for  sale  at  cost  price  upon  long  time  to  the  per- 
sons who  have  heretofore  occupied  them  as  tenants.  Payments  will 
be  made  in  annual  installments  at  a  very  low  rate  of  interest,  thereby 
enabling  the  purchasers  to  become  the  owners  of  their  holdings  by 
paying  a  little  more  than  that  formerly  paid  as  rent.  In  this  way  we 
hope  and  expect  to  settle  for  all  time  one  of  the  burning  questions  in 
the  Filipino  mind.  In  making  this  settlement  the  Government  has 
been  just,  not  to  say  liberal,  to  the  religious  orders,  and  at  the  same 
time  will  confer  a  substantial  benefit  upon  the  occupants  of  the  land. 
It  is  believed  that  the  spirit  which  dictated  this  transaction  will  be  fully 
appreciated,  not  alone  by  those  immediately  affected,  but  will  be 
accepted  by  the  great  mass  of  the  Filipinos  as  a  further  evidence  of 
the  kind  feeling  and  beneficent  purpose  of  the  American  Government. 

CURRENCY. 

The  Commission  perceived  in  the  ver}^  beginning  that  one  of  the 
great  drawbacks  to  anything  like  the  permanent  prosperity  and  prog- 
ress of  the  islands  was  the  lack  of  a  stable  currency.  The  only  circu- 
lating medium  which  the  Americans  found  here  was  an  irredeemable 
silver  currency  composed  of  Mexican  and  Spanish -Filipino  coin.  The 
general  tendency  of  silver  has  been. for  many  years  downward,  but 
with  frequent  and  violent  fluctuations  in  price.  The  currency  in  circu- 
lation, as  a  result,  rose  or  fell  with  the  advance  or  decline  of  silver.  All 
transactions,  and  especially  those  involving  credits,  were  consequently 
largely  speculative;  this  has  been  disastrous  to  all  business  enterprise. 
The  Commission  in  its  first  report  to  the  President  urged  legislation 
by  Congress  which  would  give  to  the  people  a  silver  currency  to  which 
they  had  always  been  accustomed  but  redeemable  in  gold,  thus  estab- 
lishing and  fixing  a  uniform  sta])le  standard  of  values.  The  Congress 
of  the  United  States,  on  the  2d  day  of  March,  1903,  passed  an  act  the 
provisions  of  which  substantiall}^  embodied  the  reconuucndations  of 
the  Commission,  and  provided  for  a  new  coinage  of  Philippine  pesos 
redeemable  at  the  insular  treasury  in  gold,  which,  together  with  the 
United  States  gold  coin,  are  declared  to  be  the  sole  legal  tender  of  the 
islands  after  a  date  to  be  fixed  by  the  Commission.  Pursuant  to  this 
act,  the  insular  government,  l)y  proper  legislation  and  executive  order, 
has  demonetized  Mexican  dollars  and  provided  for  the  redemption  and 
recoinage  of  the  Spanish-Filipino  currency.  It  has,  however,  met 
with  considerable  difficulty  in  iinmediately  retiring  the  outstanding 
Mexican  and  Spanish-Filipino  coins,  because  the  great  mass  of  the 


728  REPORTS    OF   THE    CIVIL    GOVERNMENT 

people  failed  to  understand  and  aj^prociate  the  real  value  of  the  new 
currenev  and  continued  to  receive  and  use  in  their  daily  transactions 
the  old  upon  a  parity  with  the  new  coins.  The  dilHculty  of  substi- 
tutino-  the  now  currcnc}"  for  the  old  has  furthermore  l)cen  increased  by 
reason  of  the  fact  that  certain  business  interests  have  found  it  to  their 
advantao-c  to  buy  the  henip,  copra,  and  tobacco  produced  in  the  islands 
in  the  old  coins,  which  are  nuich  cheaper  than  the  new,  and  thereafter 
to  sell  their  purchases  in  foreign  markets  for  jjold.  The  Connnission, 
however,  has  been  thoroughly  convinced  that  there  could  be  no  real 
and  genuine  business  prosperity  and  progress  so  long  as  this  state  of 
ati'airs  continued,  and  has  therefore  enacted  legislation  which  will, 
after  the  expiration  of  a  few  months,  tend  to  make  unprofitable  the 
use  of  the  old  currency  and  thereby  make  easy  and  certain  the  intro- 
duction of  the  new  and  stable  currency. 

The  importance  of  making  efi'ective  the  wise  legislation  of  congress 
above  referred  to  can  not  be  overstated.  In  my  judgment  we  can  not 
hope  for  any  large  revival  of  business  and  improvement  in  general 
conditions  until  we  have  eliminated  this  disturbing  factor  from  the 
business  of  the  islands.  It  will  be  the  policy  of  the  Commission  to 
bring  about  this  result  as  rapidly  as  may  be  upon  the  lines  which  it 
has  already  laid  down. 

FUTURE   POLICY. 

Did  time  permit  I  might  enumerate  other  matters  of  considerable 
though  minor  importance  which  call  for  future  consideration. 
Enough,  how^ever,  has  been  said  to  indicate  the  general  lines  of  policy 
which  it  is  believed  will  be  pursued  by  the  Government  in  the  imme- 
diate future.  I  can  not  refrain,  however,  from  saying  that  the  success 
or  failure  of  the  efforts  of  the  representatives  of  the  American  Gov- 
ernment in  these  islands  must  very  largely  depend  upon  the  attitude 
of  the  Filipino  i^eople  themselves;  and,  furthermore,  that  their 
attitude  will  in  the  nature  of  things  in  turn  be  largely  affected  by  the 
attitude  of  the  Americans  in  these  islands  toward  the  Filipino  people. 
It  has  been  perhaps  not  extraordinary,  in  view  of  past  events,  that 
Americans  and  Filipinos  should,  to  some  extent,  still  stand  apart  from 
each  other.  It  seems  to  me,  however,  that  the  time  has  past,  if  it  ever 
existed,  for  an  attitude  of  reserve  and  distrust.  The  Americans  who 
are  here  in  these  islands  with  the  legitimate  and  laudable  purpose  of 
aiding  in  their  development  and  at  the  same  time  bettering  their  own 
fortunes  can  not  fail  to  see  that  they  can  only  hope  to  accomplish 
their  desires  by  establishing  cordial  personal  and  business  relations 
with  the  people  with  whom  they  must  necessarily  come  in  contact. 
This  is  so  obviously  true  that  it  does  not  require  elaboration.  Aside 
from  this,  every  consideration  of  magnanimity  and  patriotism  impels 
them  to  such  a  course.  We  are  strong;  the  Filipinos  are  weak.  We 
are  justly  proud  of  our  institutions  and  of  the  benefits  and  blessings 
which  spring  from  them.  We  have  assumed  control  and  government 
of  these  islands  without  consulting  the  wishes  of  their  inhabitants. 
Are  we  not  then  in  conscience  and  honor  bound  to  offer  them  the 
best  we  have  to  give?  In  inviting  them  to  participate  equally 
in  our  common  birthright,  we  do  not  make  ourselves  the  poorer 
but  therein  the  richer.  We  can  not  ignore  the  truth  that  in  our 
relations  with  this  people  the  Americans  here  are  quite  as  much  on 


OF   THE    PHILIPPINE    ISLANDS,   1900-1903.  729 

trial  before  the  civilized  world  us  are  the  Filipinos.  On  the  other  side, 
every  Filipino  should  turn  a  deaf  ear  to  the  sinister  promptings  of 
restless  and  selfish  agitators  and  demagogues  who  strive  to  keep  alive 
prejudices  born  of  the  evil  passions  engendered  bj^  war  and,  following 
the  example  of  the  wisest  and  most  patriotic  of  their  counUymen, 
should  frankly  and  loyally  accept  the  situation  as  it  is.  Nothing  can 
be  accomplished  that  is  good  by  a  contrary  course.  The  logic  of  events 
is  inexorable.  True  patriotism,  under  existing  conditions,  is  found  in 
a  loyal  attitude  to  the  Gov-ernment.  Every  intelligent  Filipino  must 
realize  that  his  people  in  their  present  stage  of  development  are 
unable  to  stand  alone,  and  that  in  the  very  nature  of  things  they  must 
lean  upon  some  stronger  arm.  It  is  suicidal,  therefore,  to  repel  the 
kindly  advances  made  by  those  in  authority  or  to  engage  in  a  policy 
of  obstruction  or  agitation.  There  is  no  reason  for  antagonism.  On 
the  contrary,  there  is  ever}^  reason  against  it.  The  coming  of  Ameri- 
cans to  these  islands  to  build  railroads  and  other  works  of  public 
utility,  to  engage  in  agriculture,  manufacturing,  or  the  mechanical 
arts  can  only  be  of  advantage  to  the  Filipino  people.  There  is  room 
in  these  beautiful  and  fertile  islands  for  all.  The  _  door  of  equal 
opportunity  should  be  thrown  wide  open  for  all  alike — European, 
American,  and  Filipino. 

CONCLUSION. 

And  now  in  conclusion,  1  desire  to  express  my  sincere  thanks  to  the 
President  of  the  United  States  for  the  great  honor  he  has  conferred 
upon  me.  I  am  not  oblivious  that  1  am  succeeding  a  gentleman  who 
has  fairly  earned,  by  his  elevated  character  and  high  ability  as  a  con- 
structive statesman,  the  respect  and  admiration  of  all  men  and  in 
addition  stands  "best  beloved"  in  the  hearts  of  the  Filipino  people. 
When  I  step  into  his  place  I  have  a  sobering  realization  of  how  w4de  a 
space  he  occupied  and  how  great  a  vacuum  remains.  I  understand  full 
Avell  the  difficulties,  the  perplexities,  and  the  labor  incident  to  the  posi- 
tion. I  can  onh'  promise  to  do  my  best.  For  a  successful  issue  under 
that  Divine  Providence  which  shapes  the  destinies  of  men  I  must  chiefly 
rely  upon  the  aid  of  my  colleagues  and  other  officials  of  Government; 
and  last,  but  not  least,  upon  the  sympathetic  cooperation  of  all  classes 
of  people  who  sincerely  desire  that  order,  justice,  and  the  i-eign  of  law 
shall  be  supreme. 


II^DEX 


Abra  Province:  Page. 

Financial  condition  of 395, 678 

Accounting  system: 

Mentioned 238 

Aglipay,  Gregorio: 

Movement  of 319 

Agriculture,  bureau  of: 

Botanical  work 578 

Chief  source  of  wealtli 300 

Experiment  stations 598, 599, 600 

Fiber  investigations 598, 360 

Fruits  discovered,  new  species  of 360 

Fruits,  grasses,  etc^  wide  fields  for  the  introduction  of 173 

Government  fami  at  San  Ramon — 

Employment  of  convicts  on 358 

Production  of  cocoanuts,  abaca,  and  cacao 559 

Progress  of  experiment  stations  interfered  with  on  account  of 

drought 599 

Government  fanns  and  experiment  stations  abandoned 358 

Government  rice  farm 603 

Recommendation  for  the  establishment  of 602 

Importance  of  developing 726 

Machinery,  importance  of  introduction  of 726 

Opportunities  in  the  Philippine  Islands 362 

Present  state  of 357 

Publication  of  Farmers'  Bulletins 361 

Publications  of 597 

Seed  and  plant  distribiation  of 597 

Vegetables  raised  at  Manila _-.  598 

Rinderpest,  epidemic  of,  effect  on 356 

School  of  agriculture  on  island  of  Negros 418 

Seed  furnished  by  United  States  Department  of 359 

Soil  investigation 360 

Working  f oi'ce  of,  changes  in -  596 

Ahern,  Capt.  George  P. : 

Chief  of  forestry  bureau . 341 

Investigations  made  by,  in  connection  with  rubber  and  gutta-percha  . .  171 

Albay,  Province  of: 

Conditions  in - -  34 

Financial  condition  of ---  395, 678 

Ambler,  Hon.  Byron  S. : 

Appointed  judge. - 373 

731 


732  INDKX. 

Ambos  Camarines,  Province  of:  Page. 

Fiiiaiu'iiil  ((nulitiouof 395,678 

Pi'uco  conditions  in 34 

Americans: 

Desire  of,  to  acquire  title  to  land    _  20 

Applicants  for  positions  under  civil  service                         .  _ .  o(5 

American  Circulating  Library: 

Appropriations  for .  706 

Organization  and  work  of 428 

Volnmes  contained  in 705 

Animal  industry : 

Condition  of 364,601 

Animals: 

Draft,  absence  of .   ,  481 

Inspection  of 566 

Quarantine  of  imported,  necessary 67 

Antique  Province: 

Financial  condition  of 395, 678 

Arellano,  Chief  Justice: 

Temporary  member  of  civil  service  board 38 

Architecture  and  construction,  bureau  of: 
Buildings — 

Constructed  by 423 

Destruction  of,  by  war •_ 256 

Reconstruction  of,  ordered 257 

Employees  in 699 

Expenditures  by 700 

Schoolhouses  to  be  erected  by 423 

Training  of  workmen 425 

Work  of - 699 

Work  of,  at  Baguio 424 

Archives,  bureau  of: 

Work  of 427,704 

Arrastre: 

System  desci'ibed 666 

Ateneo  de  Manila: 

Established 688 

Atkinson,  Dr.  Fred  W.: 

Appointed  general  superintendent  of  education 123 

Resignation  of 698 

Atlantic,  Gulf  and  Pacific  Company: 

Report  of,  on  Filipino  labor _ . 513 

Attorney-general's  oflB.ce: 

Business  transacted  by 374 

Niimber  of  opinions  rendered  by 374 

Work  accomplished  by 641 

Authorities,  board  of: 

Composed  of  archbishops  and  bishops. . . 42 

Duties  of 42 

Baguio: 

Agricultural  experiments  at 600 

Buildings  erected  at 339 

Civil  sanitarium  at.     (See  Sanitarium,  civil.) 


INDEX.  733 

Banks  and  banking:  p 

American  banking  facilities  recommended 299 

institutions  established 385 

Attitude  of,  toward  American  money _  106 

Authority  of  Commission  over  banks 230 

Commercial,  and  their  relation  to  mortgage  loans 234 

Establishment  of  strong  banks  recommended 232 

Examination  of  banking  institiTtions  ijrovided  for 226 

Interest,  high  rate  of,  charged 33  231 

Laws  governing  banking , 238 

Legal  depositories 233 

List  of  banking  institutions  in  the  Philippine  Islands 654 

Mortgage  banks,  necessity  for _.. 238 

Depressed  state  of  agriculture 233 

Interest  rate  of  mortgages 233 

National-bank  act,  modification  of,  recommended 230 

Notes  issued  by  Spanish  Filipino  Bank 229 

Principal,  and  local  conditions  of 109 

Reports  of  banks  submitted . 227 

Security  for  deposits 227 

Barrows,  David  P.: 

Appointed  general  superintendent  of  education 123 

Bataan,  province  of: 

Financial  condition  of. 395^  678 

Batangas: 

Experiment  station  at 599 

Batangas,  Province  of: 

Agricultural  work  in 361 

Financial  condition  of 395  678 

Improvement  of  conditions  in 34 

Organized 294 

Bates  treaty: 

Reasons  for  abrogating 537 

Bath  houses: 

Need  of  public. 554 

Benguet,  Province  of: 

Civil  government  for . 60 

Climate  of 82,338,340 

Financial  condition  of 396, 679 

Government  of I57 

Health  resort  in 81 

Meteorological  observations 83 

People  of,  description  of I57 

Roads — 

Difficulty  of  construction  of 158, 311 

Effort  to  construct  road  to  health  resort  in 27 

Estimated  cost  of 312 

From  Dagupan  to  Baguio 86 

Work  interrupted  by  cholera 313 

Beri-beri: 

In  Manila 566 

Bilibid  prison: 

Unhealthf ul  condition  of _.  562 

23181—01 47 


734  TNDKX. 

Bishops:                                      '  Page. 

Amoricans  appointed  to  tho  Pliilippino  Islands _  .    504 

Blount,  Hon.  James  H.,  jr.: 

Apiiointod  judge ^_    ,  _.       373 

Bohol,  Province  of: 

Financial  condition  of . 39G,  079 

Bonds: 

Fidelity 148 

For  purchase  of  friar  lands 502 

Issue  recommended .... 468 

Municipal,  for  jnihlic  improvements  provided  for 455 

Philippine  government,  to  be  exempt  from  taxation 290 

Botany: 

Work  done 578 

Bourne,  Edgar  K.: 

Appointed  chief  of  bureau  of  architecture  and  construction 257, 423 

Brannagan,  Frank  A.: 

Appointed  treasurer 141 

Bre"wrer,  Dr.  Isaac  W.: 

Valuable  services  mentioned 335 

Bubonic  plague: 

Campaign  against 79, 177, 335 

Decrease  in  number  of  cases  of 515 

Number  of  cases  in  city  of  ManiLi 565 

Occurrences  of,  in  Cebu 515 

Prevalence  of 335,565 

Buildings,  public.     (See  Public  buildings.) 

Bulacan,  Province  of: 

Financial  condition  of 396, 679 

Cacao: 

Production  of,  in  the  Philippine  Islands 363 

Cagayan,  Province  of: 

Financial  condition  of  _  _'_ 396, 679 

Cagayan  Valley: 

Necessity  for  railways  in 90 

Calder6n,  Don  Felipe: 

Mentioned 32 

Capiz,  Province  of: 

Financial  condition  of 396,  679 

Carabaos: 

Imported  by  government 481,603 

Carlock,  Hon.  Lyman  J.: 

Death  of 642 

Cavite,  Province  of: 

Financial  condition  of 396, 679 

Peace  conditions  in 34 

Cebu,  Province  of: 

Financial  condition  of 396,679 

Cebu,  harbor  of: 

Appropriation  for 634, 669 

Improvements  in ..   624 

Cebu  and  Iloilo: 

Increased  business  at  ports  of 669 


INDEX.  735 

Census:  Page. 

Act  of  Congress  providing  for  taking  of 433 

Difficulties  encountered  in  the  taking  of  _ . 488 

Ordered  to  be  taken 433 

Population,  rough  count  of 708 

Scope  of  work  of 433 

Taken  tinder  direction  of  Gen.  Joseph  P.  Sanger 520 

Census  bureau: 

Appropriations  for T 659, 707 

Work  of 707 

Certificates  of  indebtedness: 

Issued 652 

Chapelle,  Archbishop: 

Mentioned 32, 40 

Chinese: 

Admission  of 291 

Opposition  to 512 

Always  a  merchant 302 

Immigration  of 393 

Registration  of 671 

Cholera: 

Appearance  of,  in  Manila 327 

Cases  reported  on  board  vessels  arriving  in  Manila  _   .    568 

Germs  of,  in  Pasig  River 569 

Number  of  deaths  from 515 

Opposition  to  measures  against 330 

Progress  of  epidemic  and  number  of  cases 333 

Result  of  work  in  Manila 331 

Church,  Catholic: 

Mentioned 32 

Description  of  part  taken  by,  in  the  pacification  of  the  islands 39-41 

Functions  of 39-49 

Church  and  state: 

Separation  of 49 

Circulating   library.    (See    American    Circulating     Library     of 
Manila.) 

Civil  codes.     (See  Codes.) 

Civil  Commission.      (See  Commission,  Philippine.) 

Civil  government.     (See  Government,  civil.) 

Civil  governor: 

Inaugural  address  of 277-281,723 

President  of  the  Commission  designated  to  act  as 140 

Report  of,  for  1902 293 

for  1903 475 

Civil  hospital.     (See  Hospitals.) 

Civil  procedure: 

Bill  nearing  completion 35 

See  Codes. 

Civil  sanitarium.    (See  Sanitarium,  civil.) 

Civil  service: 

Act  providing  for  the  maintenance  of  honest,  in  the  Philippine  Islands  13 

Effect  of.. 13 

Applicants  for  appointment  under,  rules  governing -  14-19 

Duties  of --  13 


730  INDEX. 

Civil  service — Continued.  Page. 

Employees — 

Enjilisli  iind  Filipino,  abilities  coinpari'd 147 

Filipinos  not  appointed  as  stenographers 147 

Iniportaiico  of,  acquiring  native  dialects 308 

Examinations,  Avlicri^  lield .-.         38 

Given  in  Spanish  and  English 38 

!Merit  system ,  principles  being  enforced 521 

Persons  admitted  to  competitive  examinations  under 13, 19 

Rules  governing  applicants --- 13, 14 

Soldiers  and  sailors — 

Preferred  for  positions  under 37 

Recommendations  made  by  civil  service  board  relative  to 38 

Teachers  not  nnder  rules  of 308 

Civil  service  board: 

Activity  of —       308 

Cooperation  with  United  States  Civil  Service  Commission 308 

Members  of,  appointed 13, 38 

Residence  and  salary  of -        13 

Recommendations  made  by,  concerning  soldiers  _ 38 

Rules  prepared  by,  nature  of 13-19 

To  whom  applicable 13-19 

Provisions  of 14-19 

Civil  supply  store: 

In  charge  of  constabulary 620 

Climate: 

Effect  of,  upon  health 175 

Coal: 

Deposits  of,  in  Philippine  Islands 172 

Sources  of  supply  and  cost  of 629 

Coast  and  geodetic  survey,  bureau  of: 

Progress  made  in  work  of 195,196,317,629 

Suboffice,  establishment  of,  at  Manila 195, 196 

Coast  guard  and  transportation,  bureau  of: 

Difficiilties  in  transportation 1 316 

Light-house  division  of 623 

Light-houses  constructed  by 317 

Vessels  purchased 316, 621 

Work  and  duties  of 190-193 

Coastwise  trade: 

Rates  of  transportation  affecting  rice  and  other  commodities 318 

Vessels  employed  in 318 

Laws  relating  to  interisland  trade 527 

trade  between  United  States  and  Philippine  Islands  -  -       529 
Cocoanuts: 

Cultivation  of 362 

Code: 

Criminal 375 

Criminal  i)rocedure  .- _ - 375 

Codes: 
Civil- 
Laws  governing  business  transactions  set  forth  in 215 

Procedure — 

Enactment  of : 210-214 

Postponed - 641 


INDEX.  737 

Codes — Continued.  Page. 
Civil — Con  tinned . 

Procedure — Continued. 

Habeas  corpus  included  in , 212 

Official  language  of  the  courts,  discussed 210 

Radical  departure  from  Spanish  procedure 212 

System  of  jury  trials  omitted  from 212 

Various  provisions  of 213 

Criminal- 
Enactment  of,  postponed 641 

Preparation  of 214,215,641 

Municipal,  preparation  of 35 

Mining,  preparation  of 172 

Coffee: 

Intheislands 363 

Growing  of,  experiments  in 598 

Coinage.     (See  Currency.) 
Cold  storage  and  ice  plant: 

Capacity  of 217 

Cost  of,  estimated 216-219 

Object  of  e.stablishment  of    216,376 

Price  paid  for  and  space  occupied  by 219, 643 

Revenues  earned 643 

Work  performed  by 643 

Colleges.     (See  Education.) 
Combe,  Dr.  F.  J.: 

Efficient  service  mentioned 835 

Commerce: 

Condition  of 466 

Dairy  products  in  demand 78 

Development  of,  retarded 673 

Goods  needed  in  the  Philippine  Islands • 74 

Market  for  Philippine  products 73 

Modern  machinery  needed  in  the  Philippine  Islands .  _ . .  75 

Commerce  and  police,  department  of: 

Bureaus  under .  1^2 

Consulting  engineer . 318 

Franchises  and  corporations,  Manila  electric  street  railway 317 

Report  of  the  secretary  of 311 ,  61 1 

Commissary: 

Estaljlishment  of  civil ,  for  employees _  151 

Commission,  civil.     (See  Commission,  Philippine.) 
Commission,  Philippine: 

Appointment  of  members  of . . .  _ . 5 

Duties  of 5 

Appointments  made  by 6 

Arrival  of ,  in  Manila . 3 

Assistance  rendered  to,  by  Filipinos 135 

Board  of  commissioners  created ._. 5 

D(isirability  of,  t<j  cooperate  with  military  authorities 5 

Duties  of 10,35 

Future  work  of 725 

Policy  of 723 

Future 738 


738  INDEX. 

Commission,  Philippine— Con tiiniod.  Page. 

Board  of  coiuinissioners  creuted— Continued. 

Railroads,  building  of,  recommended .  - - 257 

Report  of,  to  Secretary  of  War ,-....  5 

Results  obtained  by 723 

Committees  of  the,  list  of 143 

Dispatches  from - ...  -  25, 36 

Governments  organized  by,  distribution  of  powers  of 7 

Instruction  of  the  President  to,  April  7,  1900 5 

InstriTctive  sessions  of 35 

Legislate,  exercise  of  power  to 28 

Office  of . 5 

Powers  of  - " 

Purposes  of ^^ 

Reports  of 21,31,285,465 

Rules  and  orders  of 6, 7, 9 

Rules  governing 5, 6 

Transfer  of  power  of  government  from  military  governor  to •        6 

Visit  of,  to  provinces 1*^4 

Work  accomplished  by 1^*^)  1^5 

Conant,  Charles  A.: 

Report  of 223 

Conditions,  peace: 

General  progress  of 293 

Constabulary,  Philippines: 

Captures  made  by 615 

Certain  engagement  mentioned 615 

Civ'il  siTpply  store  under  supervision  of 620 

Cooperation  between  scouts  and ,  authorized 617 

Desertions  from *^1^ 

Employment  of  natives  in 181, 611 

Establishment  of •_ 611,612 

Necessity  for  the 1^2 

Provisions  of  act  relating  to 183 

Gomez,  Dr.  Dominador,  a  professional  agitator 616 

Ladrones,  ravages  of 613 

Number  of  men  enlisted  in 183, 312 

DiTtiesof 313 

Organization  of  bureau  of 612, 183 

Telegraph  division,  act  organizing 619 

Work  of ---- 484,616 

Copper: 

Deposits  of,  in  Philippine  Islands . 172 

Copyrights.     (See  Patents,  copyrights,  and  trade-marks,  bureau 

of.) 
Courts: 

Admiralty,  jurisdiction  of -       199 

Challenge  of  judges 199 

Customs  appeals — 

Judges  for,  increase  in  number. 373 

Jurisdiction  of 635 

Organized 634 

New  legislation  relating  to 634 

Work  accomplished  by.. 634 


INDEX.  739 

Cotirts — Continued.  Page. 

Established 197 

First  instance — 

Established 202 

New  legislation  relating  to 634 

Judicial  districts : 206 

Judiciary,  judicial  system  organized .. 369 

Jurisdiction  of 202,203 

Justices,  organization  of., . 99 

Land  registration — 

Organized , 636 

Methods  of  procedure  in 637 

Salaries  of  judges  of 636 

New  legislation  relative  to _•      870 

Reorganization  of 200-206 

Spanish  language,  importance  of ,  in 100 

Supreme — 

Changes  in  the  personnel  of 642 

New  legislation  relating  to 632 

Criraes  and  treason: 

Act  defining 371 

Criminal  Code.     (See  Codes.) 
Currency: 

Banks  refused  to  receive  deposits  of  United  States  money 22, 223 

Bullion  purchased  for  coinage 646 

Coinage — 

Act  of  Congress  relative  to 461 

Bullion  purchased  for 646 

Labors  of  Charles  A.  Conant 223 

Manila  mint,  used  for  execution  of  new 226 

Mint,  establishment  of,  at  Manila 458 

Proposed  new 223 

Provided  for  by  Congress 458 

Purchase  of  bullion  for,  recommended 224 

Recommendations  of  Commission  regarding 223, 224 

Subsidiary  coins  recommended 226 

Coinage  of,  aiithorized 458 

System  for  the  Philippine  Islands  provided  for  by  Congress 461 

System  of,  proposed 107, 461 

Historical  data  concerning 101 

System  of,  Japan  and  India  _.    .       380 

Demonetization  of  Spanish-Filii^ino  coins 648 

Deposits  of  civil  funds  in  gold  and  Mexican 229 

Difficulties  of  accounting -.       380 

Evils  of  former  currency  system  summarized 383 

Fluctuating  value 22,102,301,377,645 

Gk)ld- 

Deposits  of  civil  funds  in 220 

Method  of  maintaining  parity  with  silver -.-  650, 652 

Reserve  fund  provided  for 225, 649 

Standard  recommended 378 

Jenks,  Prof.  J.  W. ,  recommendations  by 381 

Kinds  of,  in  circulation 101,  219 

Method  of  maintaining  parity  between  gold  and  silver 650, 652 


740  INDEX. 

Currency — C'oiitiiinod.  Page. 

Mexican — 

Amount  of,  in  Philippine  Islands -  C47 

Demand  for,  in  China .   . 219 

Deposit  of  civil  funds  in 220 

Exjiort  duties  imposed  upon -  211 

Importation  and  exportation  of G47 

Redemption  of 647 

Officaal  ratio — 

Freciuently  changed -  378 

In  effect  during  fiscal  year  1903 645 

Silver — 

Certificates  issued -  - - -  -  -  651 

Fluctuation  in  value  of 102, 222, 287, 301 ,  377, 645 

Methods  of  maintaining  parity  vpith  gold -.  650, 652 

Spanish-Filipino — 

Amount  of.  in  the  islands 647 

Importatii  )n  and  exportation  of : 647 

Redemption  of 647 

System  established 727 

Customs  service: 

Administrative  act  relating  to 372, 391 

Coastwise  lavps 673 

Congested  condition  of  Pasig  River 666 

Countries  doing  business  with  the  Philippines  ,    . 247 

Direct  exportations  of  hemp  to  United  States 669 

Duties  performed  by 666 

Expense  of  lightering  at  Manila 666 

Export  duties 114 

Imports  and  exports 670 

Importations^ 

Increase  under  American  control 116 

List  of  more  important  articles  of 247 

Value  of,  and  duties  collected 115 

Imijrovements  on  Manila  custom-house 392 

Increased  volume  of  business  under  American  administration 247 

Interisland  freight  charges  excessive 667 

Miscellaneous  charges  _ 114 

Opening  of  coastwise  ports 392 

Pro  rata  cost  of  collecting  customs  revenue 392 

Registration  of  Chinese  in  the  Philippine  Islands 671 

Smith,  Gen.  James  F. ,  appointed  collector  of  customs 246 

Spurgin,  Col.  William  F. ,  first  collector  of  customs 246 

Vessels  engaged  in  interisland  trade 667 

Customs  tariff: 

Act  of  Congress  relative  to. 435 

Changes  in  revised,  at  Washington 246 

Inequality  of  schedules -- 671 

Operations  of  new  law 390 

Reduction  on  food  stuffs 391 

Revision  of,  ordered 111>  245 

Spanish — 

Description  of 111,116 

Tariff  at  first  in  force - 245 


INDEX.  741 

Defalcations:  Page. 

By  Americans 522 

List  of  defaulters 523 

De  Mey,  Dr.  Charles  F.: 

Efficient  services  mentioned... 334 

Disbursing  oflS.cers: 

Number  of 528 

Disbursements: 

For  fiscal  year  1903 , 658 

Dispensary: 

Free,  Manila 561 

Disturbances: 

In  the  provinces 489 

Dorsey,  Clarence  W.: 

Soil  physicist  of  bureau  of  agriculture 360 

Dudley,  Dr.  Frank  W.: 

In  charge  of  San  Lazaro  detention  camp 335 

Dysentery: 

Deaths  from 566 

Education: 

Aims  of 710 

Among  Negritos 415 

Appropriation  for  public  instruction 698 

Bureau  of — 

Changes  in  personnel  of 698 

Work  accomplished  by,  and  remaining  to  be  done . . . .  _  697 

Civil  service  not  applied  to  teachers 308 

Destitute  and  criminal  children,  provisions  for  the  instruction  of 129 

Industrial  _ . 413 

Lack  of  tools  among  artisans 414 

Manual  labor  considered  disgraceful .. 414 

Language  of  the  schools 412 

Filipinos  ignorant  of  Spanish 412 

Importance  of  acquiring  English 412 

Local  self-help  in  educational  affairs 410 

Moro  Province 696 

Moros,  education  of 415, 416 

Municipal  supi)ort  of — 

Normal  students. 411 

Schools 421 

Normal  iastruction  provided  for  teachers 697 

Organization  of  system 399 

Primary  (;ducation,  aim  of. 710 

Public  instruction  under  Spanish  rule .  085 

Ateneo  de  Manila  osta])lished 688 

Beginning  of  education  in  the  Philippine  Islands 686 

Early  education  in  hands  of  the  church 687 

EHtal)lishment  of  colhige  of  Santo  Tomas. 687 

Establishment  of  Royal  College  of  San  Juan  de  Letran 687 

Letters  i)rior  to  arrival  of  Spaniards 6S5 

List  of  schools  and  d  ate  of  estal  >li  shment ,. 688 

School  Ijooks,  kind  of.  employed 71j9 


742  INDEX. 

Education— roiitiiuicd.  Page. 
Schools — 

Agriciiltiinil ,  establishment  of,  in  Negros .-  128 

Agricnltiirul  follego _ GOl 

Attempt  to  establish  primary  system OG 

Attendance 693 

Compiilsory 126 

Not  compulsory . 418 

Biiildings,  dearth  of 696 

C(mstrnction  of  and  repairs  to 696 

College  of  San  Juan  de  Letran  established 687 

Compulsory  attendance  npon . . 418 

Day,  enrollment  in  public 694 

Democracy  of  public _  714 

Division  superintendents 400 

English,  teaching  of,  in  public 711 

Basis  of  instruction 125, 691 

Enrollment  in  day 694 

High,  organization  of 720 

Instruction  in  agriculture 418 

Insular  support  of 421 

Language,  English,  as  the  basis 257, 412 

Military,  necessity  for 128 

Nautical  school — 

Buildings  erected  for 420 

Course  of  studies  in . 127 

Instructors  appointed  from  the  Navy 421 

Report  of  Philii^pine  Islands  Commission  relative  to 271, 420 

Negritos 415 

Night- 
Branches  taught  in 126,419 

Classes  for  women  in 126 

Organization  of 419 

Pupils  enrolled  in - 419 

Success  of 419 

Normal,  municipal  support  of  students 411 

Normal  institutes  held  during  long  vacation . 409 

Normal  school  of  Manila — 

Attendance 267,405 

Methods  of  economy  practiced  by  natives 268 

Opening  of,  on  American  plan 127 

Provision  for 258 

Number  of,  established 408 

Primary — 

Attendance 261 

Attitude  of  native  teachers  toward  Americans 262 

Course  of  study  prescribed  for 689 

Curricula  for 263 

Demand  for  night  schools,  salary  of  teachers 264 

Diflficulty  of  cultivating  punctuality 261 

English  the  language  of 262 

Native  enthusiasm  for  education -.  263 

Necessity  for  suitable  buildings ..- 263 

Number  of,  in  operation - 719 


INDEX.  743 

Education— Contimied.  Page. 
SchooLs — ContinTied. 

Primary — Continued. 

Support  of 137 

Progress  of 517 

Provincial,  for  secondary  education 407 

Support  of 421 

Pupils  enrolled  in 269 

Religion  in 258 

Secondary  instruction  in  provinces 407 

Condition  of  provincial  population 408 

Spanish  system  not  secular 713 

Support  of 257,421 

System  of,  recommendations  for  improving 129 

Work  accomplished  by 725 

Organization  of 691 

Teachers — 

American  appointed 270, 399, 401 

Assignment  of •. 258, 261 

College  for 406 

Filipinos  employed  as 402 

Force  in  tlie  islands 691 

Hardships  endured  by 402 

Instruction  given  to  native 407 

Medical  supervision  furnished 260 

Number  of,  employed 720 

Reception  of 259 

Relation  to  people 695 

Salaries  prescribed  _ . 257, 692 

Sanitary  prec^autions  taken 260 

Transportation  of •_ 258 

Telegraphy 421 

Pupils  enrolled  in 421 

Trade  School  of  Manila,  appropriation  for 264 

Establishment  of 258 

Instruction  in  telegraphy 265 

Necessity  for 128, 265 

Under  military  government — 

Educational  outlook 133 

Instruction  in  English 123 

Salaries  paid  teachers 123 

Schools  established  by  General  Otis *  122 

Under  Spanish  rule 121 

Branches  taught- .   131 

Lack  of  facilities  for  instruction ._.  121 

Work  accomplished  in. 697 

"Work  of  Jesuits 688 

Edwards,  Clarence  R.: 

M(!iitionod 163 

Engineering,  bureau  of: 

Appropriations  for  harbor  improvements 624 

Bengnet  road  „ .__ .  625 

Duties  of,  described ... 634 

Electric  power  for  Manila 628 


744  INDEX. 

Engineering,  bureau  of— Continneil.  Page. 

Hiirbor  surveys  mid  soundings  made  by... -..  624 

Highways 629 

Pansipit  River  improvements - 625 

Tarlac  and  Pampanga  rivers 625 

Ethnological  survey: 

Necessity  for ., 607 

Work  of 607 

Executive  bureau: 

Secretary  of,  report  of 305 

Work  accomplished  by 549 

Expenditures: 

Ajipropriations  for  extraordinary  expenses 662 

For  city  of  Manila,  how  borne 389 

For  piTblic  instruction 698 

Governmental  estimate  of 662 

Revenues,  siirplus  and -  52 

See  also  Receipts  and  expenditures. 

Exports: 

From  the  Philippine  Islands 506 

Statistics  concerning 670 

See  also  Imports  and  exports. 

Federal  party: 

First  president  of 140 

Organization  of .  _   131 

Fergusson,  Arthur  W.,  executive  secretary: 

Excellent  work  of . 305 

Fiber: 

Investigations .-... 598 

Filipinos: 

Appointed  on  the  Commission 140 

Desire  of,  to  acquire  title  to  land .. _• 26 

Educational  advantages  for.  improvement  in 35 

Exhibit  at  St.  Louis 518 

Appropriations  for 519 

Independence  and  capacity  for,  of  slow  growth 280 

Positions  under  civil  service,  applicants  for 30 

preference  given  to 37 

Students — 

^  In  the  United  States 271,412,518,697 

*  To  visit  United  States 520 

Finance  and  Justice,  department  of: 

Administration  of  justice 369 

Bureaus  under. 142 

Criminal  code 375 

procedure 375 

Employees,  administration  upon  estates  of  civil 371 

Judicial  system  organized 369 

Natives  appointed  to  the  bench 369 

New  legislation  relating  to  courts 370 

Registration  of  land  titles 375 

Torrens  system  proposed 375 

Secretary,  report  of 369, 631 


INDEX.  745 

Fiscal  affairs:  Page. 

Financial  condition  in  provinces  and  municipalities 395, 678 

Insular  budget 338 

See  also  Revenues  and  expenditures. 

Receipts  for  fiscal  year  1903 657 

Fisheries: 

Legislation  concerning 174 

Source  of  food  supply 174 

Food  conditions: 

Supply  in  the  archipelago 465 

Forestry,  bureau,  of: 

Agent  of,  sent  to  Straits  Settlements,  Java,  and  Sumatra 166 

Aid  secured  for 343 

Amount  of  timber  cut  during  fiscal  year  1901 164 

Botanical  work  of 578 

Cablegrams  concerning 163 

Charges  for  cutting  timber  paid  to  government 163 

Chief  of  bureau,  inspection  of ,  by 574 

Classification,  difficulty  of 343 

Collections  by 165 

Development  of,  recommended 165 

Division  of  inspection — 

Employees  in 575 

Increase  in  number  of  stations  under 575 

Employees . 573 

Expenses  of 580 

Extent  of  forest  lands 344 

Forest  management,  division  of,  tracts  examined  and  work  done  by . .  _  575 

Forest  observations  at  Bataan,  work  on 579 

Increase  in  working  force 343 

Laboratory,  timber-testing  work  of 577 

Land  used  for 36 

Laws  relating  to,  modification  of 573 

License  fee  for  cutting  timber 163 

Licenses  issued 343 

Regulations  governing 576 

Need  of  steamer  to  facilitate  inspection 576 

Officials,  stations  of 165 

Price  of  timber 343 

Private  woodlands,  area  covered  by 579 

Products — 

Amount  of,  from  public  lands 579 

Imports  and  exports  of 580 

Revenues  derived  from . 73, 346 

How  collected 346 

Regulations  for - .   343 

Rubber  and  gutta-percha 344 

Salaries,  list  of -  165 

Sawmills,  niunber  of 343 

Special  privileges  granted  to  army  officers  in  building  roads 577 

Trees,  species  and  groups  of 70, 71 

Woods,  dyes,  investigation  of 579 

Identification  of,  microscopic  sections 578 

Workshop  of 578 


746  INDEX. 

Franchises:  Page. 

Ai-t  of  March  3,  1901 ,  relative  to,  in  the  Philippine  Islands 275 

Provided  for  by  Congress 457 

Franciscan  Order: 

Fnnctions  perf onned  by  provincial 41-49 

Not  permitted  to  own  property 43 

Freer,  Dr.  Paul  C: 

Appointed  chief  bureau  of  government  laboratories 349 

Friars: 

As  Spaniards,  representative  of  Government  of  Spain _  41 

Attitude  of  Americans  toward 47 

Charges  of  immorality  made  against 44 

Correspondence  of  civil  governor  relative  to  lands  of 496 

Duties  of  friar  priests 41 

Exempt  from  trial 44 

Investigation  of  questions  relating  to 40 

Witnesses  for  and  against 40 

Land  held  by,  amount  of 43 

Language  acqiiired  by 39-49 

Mission  work  of 40 

Native  priests  under  direction  of  _ . . 40 

Number  of,  in  the  islands 39, 503 

Diminishing 467 

Orders  of 39 

Part  taken  by,  in  the  pacification  of  the  islands 39-41 

Political  importance  of 46 

Priests,  functions  performed  by  . 41-49 

Property  rights  to  be  respected 48 

Friar  lands: 

Acquired  by  friars - 39-49 

Held  by  friars,  amount  of 43 

Purchase  of 454,460,737 

Negotiations  for _' 501 

Area  of,  amount  paid  for 466 

Question  of  sale  of,  discussed  by  Commission 390, 496 

Negotiations  at  Rome  concerning 304 

Recommendations  of  Commission  concerning  issuance  of  bonds  for  pur- 
chase of 148 

Value  of 498 

Fruits: 

Native,  proposed  improvements  of 598 

New  species  found  in  Negros 360 

Funds: 

Public,  corruption  in  the  management  of 56 

Relief,  disposition  of 466 

Realized  from  sale  of  gunboats 659 

Disposition  of 659 

Seized  and  special  deposits  turned  into  general  fund,  treasury  ... 661 

Disposition  of - 659,661 

Gazette,  Ofiacial: 

Appropriation  for 709 

Publication  of,  authorized 433 

Glanders: 

Ravages  (jf ,  among  animals 357 


INDEX. 


747 


Gold:  Page. 

Deposits  of,  in  Philippine  Islands 173 

Governmeiit: 

Central,  as  organized  by  Commission 7, 8, 140-142 

Appointments  to  fill  offices  in 7,8 

Rules  governing 8,9 

Required  qualifications  for 8 

Distribution  of  powers  of 7,8 

Various  bureaus  under 140-142 

avU— 

Change  from  military  to,  strongly  recommended 51 

Created  in  province  of  Benguet 60 

Officers  under 60 

General  Order  No.  179,  July  20,  1901 ,  providing  for 137 

Relation  between  Post-Office  Department  and  insular  government.  51 

Restricted  powers  of  military  government 50 

Transfer  from  military  to 51 

Departments  of,  act  of  the  Philippine  Islands  Commission  providing  for 

the  organization  of --  275 

Military — 

Act  No.  173 ,  returning  certain  provinces  to 139 

Transfer  of  authority  from,  to  civil 5, 51 

Municipal — 

Establishment  of,  recommended 5, 7, 53 

Plan  of,  formulated  by  Commission 7 

Organization  of,  in  towns  postponed 53 

Translation  of  order  relating  to,  into  different  dialects 53 

Filipinos — 

Character  and  analysis  of 145 

Political  ambition  of 144 

Officers  of,  inckide  both  Filipinos  and  Americans 143 

Theory  of  formation  of 143 

Provincial,  bill  for  organization  of,  nearing  completion 85 

Spanish — 

Responsibilities  of  friars  in  connection  with 42 

Spanish  representatives  of 40 

Governments: 

Civil,  act  of  Congress  providing  for  administration  of 433, 438 

Departments  of,  organization  of 141 

Difficulties  of  communication  between. 156 

Municipal — 

•For  Moro  Province 534 

Municipal  code 154 

Amended  by  Act  No.  132 - 155 

Number  of  towns  organized  under 155 

Petitions  for  creating  new  municipalities 156 

Policy  of 728 

Provincial — 

Act  establishing,  in  Moro  Province. 534 

Officers  of - -      133 

Organization  of -  -  133 

Complaints  against  land  tax.. 306 

Effect  of  land  taxes  in  provinces. 306 

Progress  of 306 


748  INDEX. 

Govornmonts — Coutinticd.  Page. 
Proviiifial — ContiiuTed. 

Native  governors  satisfactory 307 

Sui^ervisors  of  provinces ---  306 

Qualifications  for  electors  .- 156 

Self-sustaining 155 

Shortcomings  of  rnvmicipal  officers  ..- 155 

Governors,  civil.     (See  Civil  Governor.) 
Gutta-percha  and  rubber: 

Best  qualities,  location  of 170 

Found  in  Tawi  Tawi  and  Mindanao 344 

Govei-ninent  monopoly  of  recommended 345 

Investigations  regarding 171 

Native  methods  of  collecting 845 

Samples  collected  for  investigation 166 

Specimens  obtained  in  Straits  Settl -ments,  Java,  and  Sumatra,  remarks 

upon 167 

Trees  in  danger  of  extermination 346 

Value  of --- 345 

Harbor  improvement: 

Appropriation  for 194 

Cost  of  lightering 92 

Manila,  chief  port,  necessary  improvements  to 92 

Plans  for 92 

Results  of 194 

Spanish  plans  for 194 

Havice,  George  M. : 

Appointed  superintendent  of  San  Ramon  farm 358 

Health,  board  of: 
Cholera — 

Germs  carried  in  vegetables  to  Hongkong 337 

Heavy  mortality  from 329 

In  the  provinces 333 

Number  of  cases 332 

Work  for  the  suppression  of 331 

Opposition  to 330 

Result  of 331 

Progress  of 333 

Contagious  disease  hospital 324 

Diseases  peculiar  to  the  Tropics 78 

combatted  by •-  -  323 

Effect  of  climatic  conditions 175 

Epidemics 325 

Bubonic  plague 79,325,565 

Campaign  against  rats  in  Manila 325 

Cases 325 

Deaths  from 325 

Examination  of  v^rater --  555 

Failure  of  native  physicians  to  cooperate 331 

Hospitals  and  detention  camps .- 329 

Legislation  drafted  by 563 

recommended  by 323 

Medical  assistance  to  natives -- 178 


INDEX.  749 

Health,  board  of— Coiitiiaue<l.  Page. 

Organization  of 321 

Personnel  _  _ 176 

Progress  of  work  accomplished  by 551 

Provincial  and  municipal 322 

Organization  of 823 

Serum  and  vaccine  institutes 324 

Support  of,  by  courts 562 

Work  accomplished  by,  i»  city  of  Manila 553 

Hemp: 

Classification  of 508 

Exportation  of,  to  United  States 669 

Inspection  of .. _.  508 

Methods  of  cleaning 509 

Qualities  of ^ . .  508 

Reduction  of  output  due  to  reconcentration 614 

Highways: 

Appropriations  for 196 

Construction  of 196,197 

Survey  of 629 

See  also  Railroads. 

Homesteads: 

Xew  laws  regulating  lands  for,  desired 27 

Hongkong  junta: 

Members  of,  arrive  at  ^Manila 493 

Hospitals: 

Contagious  disease 560 

For  contagious  diseases 560 

Improved  facilities  for  treatment  of 560 

Insane  asj'kim  needed 560 

Need  of  a  general 560 

Hospitals.  Civil: 

Expense  for  treatment  in. 338 

Modern  public,  urgently  needed  in  Manila 178 

Necessity  for 337 

Number  of  patients  admitted  to 570 

Number  of  patients  treated 338 

Opening  of,  to  general  public 570 

Temporary  building  used  for 178 

Ide,  Henry  C: 

Appointment  of,  as  Commissioner  to  the  Philii^pine  Islands 5 

Subject  to  be  investigated  1)y,  assigned  to. .  _ 31 

Igorrotes: 

Ediication  of 415 

noilo: 

Province  of,  financial  condition  of 396,680 

Port  of— 

A])propriation  for 624,  669 

Improvement  of  harbor  of 624 

Increase  of  business  at . 669 

Ilocos  Norte,  Province  of: 

Financial  condition  of  _ _ 396,679.080 

Ilocos  Sur,  Province  of: 

Unsettled  conditions  in 33 

23181—04 48 


i ,") 


0  INDEX. 


Imports:  Pii^'e. 

Chiof  articles  of,  into  Philippine  Islands (570 

Detailed  statistics  in  regard  to  ^  ^ -  -  -  (>T() 

Increase  in - (>^0 

Imports  and  exports: 

Statistics  of 070,  r>0-) 

Improvements: 

Internal,  recommended — 470 

Needs  for..  _    -.-. - 53 

Permanent  amount  expended  for ■- 660 

Industries: 

Activity  in  . .    -  -  - -  - 37 

Insane  asylum: 

Need  of ---- ----  ^60.561 

Insular  affairs,  bureau  of: 

Created  by  act  of  Congress 460 

Printing  plant  purchased  under  direction  of 256 

Purchase  of  silver  for  new  coinage -  646 

Relations  to  insular  purchasing  agent 309 

Insular  government.     (See  Government.) 

Insular  purchasing  agency,  bureau  of: 

Amount  of  business  done  by -  - 309 

Duties  of -  -  -  -  309 

How  purchases  are  made 309 

Importance  of  the  creation  of 1 42 

Relation  with  Bureau  of  Insular  Affairs,  War  Department,  Washington, 

D.  C - 309 

Insular  revenues,     (See  Revenues.) 

Insurgents: 

Surrender  of 25 

Insurrection: 

Act  of  Philippine  Commission  defining - 371 

Suppression  of -  • -  285 

Interior,  department  of: 

Bureaus  under .. 142,321 

Insane  asylum,  need  of 561 

Legislation  drafted  by  board  of  health 563 

Organization  of - -  -  -  551 

Secretary  of,  report  of - -  321 

Inter-island  trade : 

Who  may  engage  in 674 

Internal-revenue  service.     (See  Revenues.) 

Iron: 

Deposits  of  in  Philippine  Islands 172 

Isabela,  Province  of: 

Financial  condition  of.. - -- 396 

Jesuits: 

Educational  work  of. -  -  -  688 

Johnson,  Hon.  E.  Finley: 

Appointed  member  of  the  supreme  court - 642 

Judges: 

Amendments  to  laws  affecting -- 683 

Leaves  of  absence  provided  for - 633 

Salaries  of 633 


INDEX.  751 

Judicial  system:  Page. 

Comments  on 203-210 

Justices  of  the  peace: 

Appointment  of  natives 632 

Dissatisfaction  with  system  of 544 

Kiggins,  Frank  M.: 

Appoints  member  of  civil  service  Vioard 38 

Kitasato,  Dr.  S.: 

Vahiable  information  furnished  hy 335 

Laboratories,  government,  bureau  of: 

Assay  work  of 586 

Biological  laboratory — 

Acting  director  appointed 588 

Botanical  work  performed  by 588 

Diagnostic  work  performed  by 587, 553 

Entomological  work  begun  by 588 

Estabhshment  of 180 

Locusts'  fungus  received  by 354 

Marine  laboratory  recommended .-       589 

Necessity  for 1T9 

Number  of  examinations  made  by 353 

Original  investigations  in 587 

Work  done  by 351 ,  353, 354 

Buildings  for  use  of ,--- 584,350 

Chemical  laboratory — 

Character  of  work  done  by 352, 586 

Chemical  work 352 

Establishment  of 180 

"Work  done  by 351, 352 

Gas  supply  of 586 

Investigations  with  reference  to  tropical  diseases 350 

Library  of 586 

Municii)al  laboratory,  Manila 350 

New  apparatus  and  supplies  for 586 

Opening  of,  to  puT)lic 583 

Senim  laboratory — 

Antiplague  serum  prepared  l)y 351 

Report  on  serum  laboratory 551 ,  584 

Work  accomplished  by. 349,  584 

Timber-testing  laboratory,  work  of 577 

Labor  question: 

Admission  of  Chinese  opposed  _ 512 

Contract  labor  of  the  United  States  extended  to  the  Philippine  Islands,       G72 

Efficiency  of  Filipino  lal)or - 513 

Importation  of  Chinese  urged 301 

Native  labor 512 

Organization  of  trades  unions - 302 

Relation  to  investments  of  capital - . - 514 

Report  on  Filipino  labor  ._- 513 

Skilled  laVior.  difficulty  in  securing 151 

Unions  in  Manila 494 

United  States  labor  in  competition  with  Filipinos 151 


752  indp:x. 

Ladrones:  Page. 

••  Bandolerismo  statute, ""  an  act  of  tlie  Philipiiiue  Islands  Connnissiuu 

rtlative  to  the  iiunislunent  of  . 493 

Operations  against - ~^ 

,;f -       488 

Laguna,  Province  of: 

Organized —       294 

Financial  conditions  in 680 

Iinitroveiuent  of  conditions  in 34 

Lands: 

Area  of.  private 26 

Legislation  in  re  public;  lands  needed 594 

Titles- 
Provisions  for  registration 215 

Registration  of 100, 215 

Torrens  system  applicable  to  Philippine  Islands -  -  216, 375 

Spanish 593 

See  also  Public  lands,  bureau  of. 
Langviages: 

Philippine,  varieties  of ---.       716 

See  also  Education. 
Laundries: 

Need  of  public 554 

LaAvs.     (See  also  Codes.) 
Coastwise — 

Applying  to  interisland  shipping  trade  and  trade  between  islands 

and  United  States 529 

Relating  to  navigation 469 

Unsatisfactory  condition  of 673 

Desire  for  new ,  on  part  of  natives 27 

Municipal,  drafting  of  new 54 

Regulating  rights  and  obligations  of  people 10 

La"vpshe,  A.  L.: 

Appointed  auditor -       141 

Leech,  John  S.: 

Appointed  public  printer 426 

Legal  procedure: 

Description  of  Spanish  method -,. 97 

New  code  prepared 98 

Legardo,  Benito: 

Ai)pointed  a  commissioner 140 

Legislation: 

Drafted  by  board  of  health 563 

Recommended  by  Counnission 471 

Lepanto-Bontoc,  Province  of: 

Financial  conditions  in --       680 

Organized 294 

Leper  colony: 

Appropriation  for  leper  hospital , - 341 

Leper  hospitals  in  Philippine  Islands 77,  340 

Number  of  lepers  in  Philippine  Islands 341 ,  566 

Proposed 340 

Work  on,  in  the  island  of  Culion,  let  to  private  contractors 561 


indp:x.  753 

Lepers:  Pa^e 

Census  of. 177 

Location  of  hospitals  for .... 177 

Number  of.  in  Philippine  Islands 177, 566 

Segi'egation  of 177 

Leyte,  Province  of: 

Conditions  in 34 

Financial  condition  of 397,680 

Library,  American  Circulating,  of  Manila: 

Board  of  trustees  appointed  for 429 

Work  accomplished  by 428,  429 

Number  of  volumes  in 429, 705 

Object  of 428,705 

Licenses: 

For  cuttini^  timber  granted 576 

Lightering: 

E.xpense  of,  in  port  of  Manila 666 

Light-houses: 

Repairs  to  and  improvements  on 623 

Liquor  traflQ.c: 

Cablegrams  relating  to 29 

In  Manila 63 

Regulations  of,  in  Manila 27, 28 

High  license,  enforcement  of . . , 27, 28 

Literature: 

Philippine 716 

Loans: 

To  provinces 662 

Locusts: 

Damages  to  agriculture 567 

Experiments  to  exterminate  with  fungus 177 

Heavy  losses  to  agriculturists 567 

Methods  adopted  for  destruction  of 567 

Louisiana  Purchase  Exposition: 

Exhibit  of  weather  bureau  at 605 

Filipino  exhibit  at 518 

Lucban: 

Captured 293 

Lumber: 

High  prices  of 37 

See  also  Forestry,  bureau  of. 

Luzon,  island  of: 

Improvement  in  conditions  in 34 

Luzuriaga,  Jos6: 

Api)oiiited  a  commissioner 140 

Lyon,  Wm.  S.: 

Menti(  )ned 863 

Mabini,  A.  P.: 

Correspondence  with 484 

Death  of 487 

MacArthur,  Maj.  Gen.  Arthur,  U.  S.  Army. 

Philippine  Islands  Commission  received  by 31 


754  INDEX. 

Magnetic  Observatory:  Page. 

Work  of.. ---- - - 606 

Malaria: 

Deaths  from - -  - •''>66 

Manila: 

Birth  rate  iu ^^^^^ 

Bridges  built ^10 

Budget  for 242,665 

Expenses  of  the  city  iinder  military  control 242 

Estimate  of  receipts  and  expenditures  for 243,  etc. 

Building  operations  in - 545 

Charter  of ^53 

Congestion  in  populous  districts 558 

Death  rate  in  city  of 553, 554 

Dispensary,  free 561 

Electric  power  for 628 

Electric  street  railways  authorized 547 

Establishment  of  American  Circulating  Library  Association  in -  -  705 

Experiment  station  at 598 

Extract  from  articles  of  capitulation 11 

Fire  department  organized 311,546 

Floating  population  of 559 

Food  shops  unsanitary 559 

Foul  well  in 556 

Government  of 310 

Improved  water  supply  and  sewerage  needed 152, 544 

Improvement  of,  delayed 310 

Improvements  in 318 

JiTdges  for  the  city  of,  increased 373 

Salaries  of 373 

Liquor  traffic  in,  regulation  of 27, 28 

High  license,  enforcement  of 27, 28 

Markets  erected 310 

Medical  attendance,  lack  of 554 

Nationality  of  inhabitants 152 

Population  of... 28 

Port  works 548 

Sanitary  conditions  of 176 

Inspection  of  houses  in 552 

Sanitary  markets  of 559 

Sanitation  of 310 

Services  rendered  by  observatory 174 

Sewerage  system  of 152 

Sewer  system  one  of  the  greatest  needs  in 556 

Streets  repaired ■ 546 

Sunken  lands  in -  -  557 

Temporary  hospital  secured  for 178 

Urgent  necessity  for  modern  civil  hospital 178 

Value  of  taxable  property 311 

Women's  hospital  of --  178 

Map: 

Mineralogical,  of  the  Philippines 581 

Marinduque,  Province  of: 

Organized -- ~'"'* 


INDEX. 


755 


Marinduque,  Province  of— Continne«l.  p.ase. 

Fhiancial  conditions 6S0.  o97 

Reverses  of  United  States  troops  in 33 

Markets: 

Sanitary  condition  of 559 

Masbate,  Province  of: 

Financial  condition  of 397,  681 

McDonough,  Hon.  John  P.: 

Appointed  memljer  of  snpreme  court -•--  *i42 

McKinley,  William,  President  of  the  United  States: 

Instructions  of,  to  Commission 11 

McKinnon,  Father: 

Mentioned 33 

Meacham,  Dr.  Franklin  A.: 

Death  of ' 334 

Merchant-Marine  Service: 

Examinations  for  licenses  to  positions  in 668 

Military  government.     (See  Government.) 

Military  operations: 

At  beginning  of  1901 131 

Mindanao,  island  of: 

Conditions  in -  -  -  34 

Moro  tribes  in .  160 

Characteristics  of 160 

Provinces  under  civil  government  not  inhabited  by ICO 

Question  of  slavery  among 160, 161 

Necessity  for  railways  in SO 

Mindoro.  Province  of: 

Financial  condition  in 681 

Mineral  lands: 

Provisions  of  law  relating  to 444 

Mineral  resources: 

Claims 68 

Coal 65 

Congressional  action  conceraing  strongly  urged 172 

Copper 65 

Deposits  in  mountains  of  Benguet 627 

Deposits  in  Philippine  Islands 172 

Gold 67 

Iron -  - 67 

Need  for  mining  legislation 67 

Undeveloped 725 

Wealth ----  64 

Mining,  Bureau  of: 

Abstract  of  Spanish  Mining  Code  prepared 347 

Additions  made  to  museum - --  347 

Archives  and  records ,  indexed 347 

Collections  made  by - 582 

Desire  for  new  laws  relating  to  mining  _ 27 

Exhibit  of,  at  Louisiana  Purchase  Exposition  582 

Field  work  accomplished  by -  582 

Legislation  recommended 348 

Louisiana  Purchase  Exposition  exhibit 582 

Mineralogical  and  geological  survey 347 


750  TNDKX, 

Mining,  Bureau  of— Contiiuied.  Page. 

Miiirralogical  map  of  the  Pliilippiiu-  Islands  _    _    581 

Operations  of  the 581 

Recominenilations  of  the  chief  of 581 

Eeoi-ganization  of,  recommended 581 

Reports  prepared  by  . 347 

Reports  published  by 580 

Work  of ' -. 172,582 

Mining : 

Changes  in  laws  recommended 471 

Operations  begun 581 

Mining  law : 

Changes  suggested  in 290 

Misamis,  Province  of: 

Financial  condition  of 397. 681 

Missionaries : 

Activity  among  eai-ly  Spaniards 686 

Monetary  la"ws : 

Passed  by  Commission 105 

Morgue : 

Completion  of  new,  in  the  city  of  Manila 561 

Moro  Province: 

Bill  for  government  of,  drafted 534 

Government  of 534 

Slavery  among  the  Moros 539 

Territory  included  in . .   534 

Moses,  Bernard: 

Api)ointment  of,  as  commissioner  to  the  Pliilipi:)ine  Islands 5 

Subject  to  be  investigated  by,  assigned  to ...  31 

Mudge,  J.  L.: 

Death  of 334 

Municipalities: 

Financial  condition  in 678 

Reduction  in  number  of 541 

Municipal  code.     (See  Codes.) 

Municipal  governments.     (See  Government.) 

Museum: 

Bulletins  issued  by ... 430 

Collections  made  for 430 

Ethnology,  natural  history,  and  commerce 706 

Gifts  to 430 

Object  of 429 

Outline  of  work  undertaken 432 

Museums: 

Natural  history 706 

Natives: 

Appointment  of,  as  judges 369 

Desire  of,  to  acquire  title  to  land 26 

Geographical  distribution  of 517 

Medical  assistance  to 178 

Native  troops  and  police: 

Duties  of  native  troops -  - 95 

England's  experience  with 97 


IKDEX.  757 

Native  troops  and  police — Continue:!.  Page. 

Expense  of  maintaining 94 

Loyalty  of  native  troops 96 

Xeces.-ity  for 93 

Negritos: 

Lack  of  edncation  among 415 

Negros  Occidental: 

Financial  conditions  of   397. 681 

Negros  Oriental,  Province  of: 

Financial  condition  of o9T.  681 

New  water  supply: 

Need  of 555 

Niederlein,  Dr.  Gnstavo,  member  of  the  Filipino  exhibit  board: 

Work  of 519 

Night  soil: 

Disjwsition  of 558 

Non-Christian  tribes: 

Course  adopted  by  Commission  in  dealing  with 11 

Distribution  of 366 

Ethnological  material  collected 367 

Existence  of,  in  various  provinces 159 

Lack  of  accurate  information  concerning -  159 

Organization  of  bureau 366 

Passage  of  act  for  the  creating  of  bui'eau  of 182 

Duties  of 132 

Problems  concerning,  under  consideration 160. 161 

Question  of  dealing  with,  under  consideration 57 

Rough  estimate  as  to  number  of ^ 160 

Norris,  Hon.  "William  S.: 

Appointed  judge _    373 

Nozaleda,  Archbishop: 

Mentioned 32 

Nueva  Ecija,  Province  of: 

Financial  condition  of 307,  681 

Nueva  Viscaya,  Province  of: 

Financial  condition  of 397.  681 

Organized . 294 

OfiBcers : 

Army.  substitutif)n  of  civilians  for 39 

Municii)al — 

Loyalty  of.  to  United  States 34 

Provision  from  i)ublic  civil  fiuid  for  wives  and  children  of 34 

Official  Gazette.     (See  Gazette,  Official.) 

Opium : 

Commission  appi  )inted  tf  >  investigate  opiiun  question 521 

Fran(^hise.  proposed  sale  of 521 

Habit,  spi-ead  of                                 521 

Pacification: 

Progress  madi-  in 25.  26.  465,  483 

Progress  of  the  W(n-k  of .-  133 

Pampanga,  Province  of: 

Financial  condition  of - . 397, 682 


758  INDEX. 

Pampanga  River:  Page. 

Improvtniit'iit  of  .  . - - (525 

Pangasinan,  Province  of: 

Financial  condition  of -  -  -  397,  (583 

Pansipit  River: 

Iin])r(n-enient  of f525 

Paragiia,  Province  of: 

Financial  condition  of -  -  - <582 

Organized - 294 

Pardo  de  Tavera,  T.  H.: 

Appointed  a  Philippine  Commissioner 140 

Pasig  River: 

Congested  ct)ndition  of  commerce  on 666 

Patents,  copyrights,  and  trade-marks,  bureau  of: 

Legislation  needed -^49 

Number  of  patents  filed -^49 

Personnel  of "^O"! 

Receipts  and  expenditures  of 705 

Pepperman,  W.  L.: 

Member  on  examining  board.  United  States  Civil  Service .  _ , 38 

Perry,  Dr.  J.  C,  chief  quarantine  oflacer: 

Mentioned 336 

Philippine  Commission.     (See  Commission,  Philippine.) 
Philippine  Sugar  Estate  Developing  Company  (Limited): 

Lands  of •19'? 

Photographer: 

Work  of ^89 

Pinchot,  Gifford,  Chief  of  United  States  forestry  Bureau: 

Visit  of,  in  the  Philippines •>~4 

Pope,  Hon.  William  H.: 

Appointed  j  udge ^^^ 

Popxilar  assembly: 

Suggested,  with  limited  powers 145 

Veto  power  slionld  be  reserved 146 

Posts,  bureau  of: 

Increase  of  postal  business 623 

Post-oflfice  extension 623 

Posts,  department  of: 

Increase  of  money-order  business 315 

Postal  revenues ^^'^ 

Postal  service 193-194 

Post-offices — 

Number  of ^^'^ 

Used  as  a  depository  for  funds 316 

Procedure,  Code  of  Civil.     (See  Codes. ) 
Population: 

Floating,  of  Manila •''^•'^ 

Provinces — 

Christian  Filipino,  conditions  in 540 

Population  of ''^^ 

Rough  count  of ^^° 

President  of  the  United  States: 

Instructions  of.  to  Commission.  April  7.  1900 11 

Message  from,  transmitting  report  of  Secretary  of  War 33 


INDEX.  759 

Priests.     (See  Friars.)  Page. 

Prison: 

Bilibid,  uuliealthful  comlition  of -  o62 

Provinces: 

Acti\'ity  of  ladroues  in 297 

Conditions  in  Christian  Filipino 540 

Deaths  caused  by  cholera •- 296 

General  conditions  of 295 

Organization  of -,. 294 

Prosijerity  of  hemp  provinces 299 

Ravages  of  rinderpest  in 296 

Sanitary  conditions  in 568 

Public  buildings: 

Construction  and  repair  of 422 

Public  domain: 

Change  in  amount  to  be  acquired,  recommended 289 

Extent  of 289 

Public  health.     (See  Health,  public.) 

Piiblic  instruction,  department  of: 

Bureaus  under 142 

Establishment  of 257 

Organization  of 257 

Recommendations  of  general  superintendent 38 

Report  of  general  superintendent 710 

Secretary,  report  of 399, 685 

See  also  Education. 

Public  lands: 

Americans  and  Filiiiinos  desiring  to  aciiuire  title  t;  > 26 

Amount  of 49 

Amount  to  be  secured  by  one  person.  _-._-_. 356 

Area  of,  in  Philippine  Islands 26, 49, 50 

Certified  copies  of  documents  issued  relative  to 355 

Chaotic  condition  of  title  to 355 

Character  of.  of  public  land  system 50 

Classesof.-. 06.49,50 

Condition  of  records  of 355 

Fertilityof 26 

Forests 49 

Inquiries  relative  to. 355 

Legislation  recommended 356 

Necessity  for  survey  of 50. 153 

sale  and  settlement  of 153 

Spanish  land  system . . ^ -  50 

Squatters  subject  to  eviction 49 

Systeni  of  surveys  recommended 355 

Title  to  lands,  perfection  of 154 

Use  of - 26,49,50 

Public  lands,  bureau  of: 

Certified  copies  of  documents  issued  Ity 355 

Condition  of  records - -  -  355 

Establishment  of -  - - -  -  - 354 

Legislation — 

Drafted  by  chief  of  bureau 501 

Necessity  for  Congressional 594 


700  INDEX. 

Public  lands,  bureau  of— Continntd.  Page. 

l^lan  for  lioveriniiciit  surveys  _  . _ 593 

Sun  Laxaro  estate.  administratiDU  of                      ._ 592 

Spanish  land  titles 593 

See  also  Lands. 

Public  printing,  bureavi  of: 

Amount  of  work  pert' ( irnieil  1  > y 703 

Cost  of  operations _ __  703 

Employees  of .  427,701 

Exorbitant  prices  charged  government  for . 256 

Facilities  formerly  inadequate 133 

Leech,  John  S. ,  appointment  of,  as  pnblic  printer 426 

Printing  plant  purchased  for 356. 426 

Cost  of : . 427 

Report  of  secretary  public  instruction  relative  to 436 

System  of  apprenticeship  in 703 

Wages  paid  by 703 

Public  records: 

Archives  carried  to  Spain 355 

Books  and  treasury  accounts 255 

Ciistom-house  records  missing 256 

Destruction  and  loss  of  records ...  -  254 

Importance  of  archives  of  the  Spanish  Government • ...  254 

Important  documents  preserved  in  the  provincial  capitals 256 

Important  subjects  which  are  matters  of  record 254 

Transfers  of  real  estate .  records  of ' 255 

Pulajanes: 

Attacks  by 488 

Purchasing  agent: 

Ofaceof 533 

Work  accomplished  by 533 

Quarantine  service: 

Importance  of 568 

Quarantine  of  imported  animals  necessary 567 

Report  of  Secretary  of  Interior  on 568 

Table  showing  amount  of  work  done - 570 

Work  accomplished  by 336 

Railroads: 

Absence  ( )f  highways 88 

Cagayan  Valley,  necessity  for  railways  in 90 

Capitalists,  interested  in  the  building  of .  726 

Certain  powers  recommended  to  be  given  the  Commission 186 

Construction  of 515 

Cost  of  building  in  Luzon 186 

Manila  and  Dagupan  railways,  description  of 89 

Necessity  for 87, 735 

In  Mindanao 186 

Observations  by  Comimission  for  law  concerning 184 

Oijportunities  for  building  of 185 

Projected  railway  lines 91 

In  northern  Luzon 185 

Recommendations  relative  to  concessions  for 187 

Reconnaissance  survev  for.  in  Luzon 514 


INDEX.  761 

Railroads — Continued.  Page. 

Special  inducement  for  building  required 186 

Territory  awaiting  development  by  building  of 89 

Receipts  and  expenditures : 
Estimates  of — 

Annual  estimate  required 238 

Budget  for  city  of  Manila 238, 661 

Difficulty  of  establishing  a  system  for 238 

Expenditures  for  tlie-customs  service 239 

internal-revenue  se;vice . . 239 

postal  service 239 

for  all  other  services 239 

fiscal  years,  1901 289 

1902.. 241 

1903 388 

Increase  of  revenue 240 

Internal-revenue  taxation  considered 240 

Miscellaneous  receipts . 239 

Municipal  expenses  of  the  city  of  Manila  paid  from  insular  treasury.  240 

New  bureaus  of  the  government  created 239 

Sums  appropriated  for  military  expenses 239 

See  also  Revenues. 
Recommendations: 

Appeals  be  granted  to  Supreme  Coui-t  of  United  States  in  certain  cases.  27S 

Army  posts  to  ba  erected  outside  of  towns 272 

Authority  to  issue  bonds  for  the  purchase  of  friar  lands 273 

charters  to  railroads 274 

City  of  Manila  be  authorized  to  issue  bonds  for  municipal  improve- 
ments    273 

Enactment  of  public-land  law 273 

general  coinage  law  by  Congress  . 274 

banking  law  for  the  islands 274 

corporation  law 274 

Forestry  regulations  to  be  continued  in  force 273 

Mining  law  be  authorized 273 

Organization  of  government  into  departments 272 

Power  be  given  to  grant  municipal  franchises 273 

Reduction  of  United  States  duty  on  Philippine  Island  products 273 

Summary  of 272 

Recolletos: 

Land  acquired  by 43 

Reconcentration: 

Act  of  the  Pliilippine  Islands  Commission  relative  to 492, 

Records.     (See  Public  records.) 
Refunds: 

Duties  collected  in  the  United  States  on  Philippine  i)roducts 660 

Religion: 

Religious  freedom  in  the  islands 504 

Religious  questions  taken  up  by  Commission . .  496 

Restaurants: 

Insanitary  condition    . .  .  _ 559 

Revenues: 

Approijriations  for  improvements 52 

Increase  in .-  5^ 


7(^2  INDEX. 

Revenues — Contiimeil.  Page. 

Collection  and  di-slnuvsemeut  of,  effort  to  rreate  sy.^tem  for 56 

Decrease  in 467 

Internal-revenue  service — 

Certificates  of  rej^istration  (cedulas  personnalas) 119 

Collections,  increase  of 248 

Collections  and  expenses,  statement  of  department  to  October  1, 

1901.     -..- --  249 

Draft  of  new  internal  law  prepared 677 

Industrial  activity,  increase  of -  -  -  253 

Industrial  licenses,  number  in  force 252 

Industrial  taxes,  amount  of 251 

Land  tax 119 

Personnel  of  bureau  of 248 

Receipts  of  Spanish  Government  suspended  under  American  occu- 
pation    120 

Revenue  districts,  list  of 248 

Revenue  for  the  city  of  Manila : 249 

Sources  of 117 

Stamp  accovmts  of  the  internal-revenue  office 253 

Stamps  handled  by  the  office 677 

Taxes  .. 119 

Urbana  taxes 118,252 

See  also  Revenues. 
Plans  of  the  Philippine  Islands  Commission  relative  to,  for  support  of 

government 1-50 

Report  of  the  auditor,  1903 531 

Revenues  and  expenditures: 

Surplus ^2 

Rice: 

Amount  expended  for 476 

Crop,  failure  of 286 

Depressing  agricultural  conditions  affecting 507 

Disposition  of 476 

Distribution  of 479 

Farm  operated  by  government 602 

High  price  of 475 

Imported  by  government  of  Philippine  Islands ^ 300, 475 

Improvements  in  conditions  relating  to  imports  and  exports  of 505 

Locusts,  ravages  by 477 

Destruction  of 4(7 

Road  work  performed  at  expense  of  relief  fund 479 

Used  as  the  chief  food  of  natives 286 

Rinderpest: 

Extermination  of,  cooperation  of  Inirean  of   government  laljoratories 

and  board  of  health 552,556 

Prevalence  of,  in  provinces 1^7 

Prevention  of 566 

Ravages  of ~'°^ 

Rizal,  Province  of: 

Financial  conditions  of ^97, 682 

Roads; 

Benguet  road,  construction  of -  -  -  625 

Survevs  made  for -  -  636 


INDEX.  763 

Hoads — Continued.  Page. 

Benguet  road — Continued. 

Difficulties  encountered  in  construction 626 

Work  done 516 

Eomblon,  Province  of: 

Financial  conditions  of .  _ 898,  683 

Eoosevelt,  Theodore,  President  United  States: 

Letter  of.  transmitting  report  of  Philippine  Islands  Commission ,  383 

Eoot,  Elihu,  Secretary  of  JWar: 

Letter  of.  transmitting  report  of  Philippine  Islands  Commission 383 

Mentioned . 163 

Rubber  and  gutta-percha.     (See  Gutta-percha  and  rubber.) 

Samar,  Province  of: 

Financial  conditions  in 683 

Organized 294 

Salvador,  Felipe: 

Raids  by .. 490 

Sanger,  Gen.  Joseph  P.,  director  of  Philippine  census: 

Census  taken  under  direction  of 530 

Sanitarium,  civil: 

At  Baguio,  establishment  of  constabulary  depot  at 571 

Change  in  rates  of 573 

Conditions  of,  at  Baguio  . 338 

Cottages  on  government  grounds  at 573 

Employees,  reorganization  of 573 

Improvement  of  grounds . . 573 

New,  needed 573 

Work  of  sanitarium 573 

Sanitation: 

Conditions  of,  in  Manila 176 

Conditions  in  the  province  - 568 

Esteros)  plan  for  improving 557 

Garbage,  disposal  of 558 

Night  soil,  disposition  of .  _ .  558 

Sanitary  laws _  563 

San  Jose  College: 

Case  of _  149 

Petition  to  open,  for  medical  students 33 

Resistance  to 33 

San  Juan  de  Dios: 

Charity  institution,  value  of 32 

San  Lazaro  estate: 

Administration  of 593 

San  Miguel,  ex-insurgent  general: 

Death  of 484,  613 

Santo  Tomas  College: 

Estaljlishment  of 687 

Schools.     (See  Education.) 

Scouts: 

Cooperation  with  c(jnstabulary 491 

Detailed  to  cooperate  with  constabulary 617 

Organization  of 183 


7(U  INDEX. 

Scribner,  F.  Lamson:  Pa^'^. 

A])pointt'(l  fhief  of  hiirean  of  aiji"i<^'nltuve  _ 'S7)d 

Secretary  of  War.     (See  War,  Secretary  of.) 
Sewer  system: 

Great  need  for.  in  i-ity  of  Manila _  _ 557 

Iniprovement  in , . . .       556 

Esteros  as  an  aid  to 557 

Sherman,  Dr.  P.  L.: 

Investit^ations  of  rubber  and  ij:utta-percha  indus  ries   _. 844 

Shuster,  W.  Morgan: 

Appointed  collector  of  cnstoms 240 

Aided  in  revision  of  tariff 246 

Silver: 

Flnctnations  in  price  of 287 

Silver  certificates: 

Priivision  for 649 

Siniloan: 

Reverses  of  United  States  troops  near 33 

Slavery: 

Consideration  of  qiiestion  of,  in  Philippine  Islands .  _       163 

In  the  Philippine  Islands 160-162 

Smallpox: 

Condition  of.  in  Manila 565 

Prevalence  of,  in  the  city  of  Manila  ,  _• . .  _ 177 

Vaccinations  and  results  from 565 

Smith,  Hon.  James  F.: 

Appointed  member  of  the  Philippine  Commission . 642 

Smith,  General,  governor  of  Negros: 

Mentioned 32 

Sociadad  Agricolo  de  Ultramar: 

Lands  conveyed  to.  by  Augustinian  Order : 497 

Society  of  Jesus: 

Educational  work  of  _    688 

Southall,  Dr.  Edward  A.: 

Praised  f<  )r  f aithfiil  service ^ 335 

Sorsogon,  Province  of: 

Financial  conditions  of 398,  682 

Spanish  Government.     (See  Government.) 
Statistics,  bureaii  of: 

Abolitionof '    707 

Transfer  of  clerks - 432 

Work  of.  suspended 432 

St.  Augustine: 

Order  of,  mentioned 40 

Estate  granted  to 43 

St.  Dominie: 

Order  of,  mentioned 40, 43 

St.  Ignatius  College: 

Founded 687 

St.  Thomas  University: 

Petition  from  director  of,  for  the  opening  of  San  Jose  College 32 

Resistance  to  . . . _ - 32 

Stock  raising: 

Stock ,  imported  for  breeding  purposes .  - . 601 


INDEX.  765 

strong,  Dr.  Richard  P.:  Page. 

Appointed  director  of  biological  labortory 350 

Sugar: 

Amount  of.  cultivated 32, 33 

Exports  of 509 

Exportations  in  former  years 510 

Cost  of  production 510 

Growers  deprived  of  markets 289 

Value  of,  exported  from  Philippine  Islands 509 

Sultan  of  Jolo: 

Failure  to  comply  with  pro^^sions  of  Bates  treaty 538 

Sulu,  Sultan  of: 

Inter^'iews  of  Commission  with 160, 161 

Surigao,  Province  of: 

Financial  conditions  of 398, 682 

Surveys: 

Ethnological,  of  Philippine  Islands 606 

Plan  for  government 592 

Tagalogs: 

Disturbances  caused  by 38 

Tariff: 

Law,  modification  of - - 35 

Reduction  on  goods  and  merchandise  imported  into  United  States 288 

of  duty  recommended -- 466 

Relations  with  United  States 152 

Recommendations  for  changes  in 153 

Taft,  William  H.: 

Civil  governor,  mentioned - 163 

Designation  of.  as  president  of  Commission - 5 

Extracts  from  correspondence  of 25 

Subject  to  be  investigated  by,  assigned  to.. 31 

Tarlac,  province  of: 

Financial  condition  of 398. 683 

Tarlac  River: 

Improvements 625 

Tavera,  T.  H.  Pardo  de.     (See  Pardo  de  Tavera,  T.  H.) 

Taxation: 

Changes  in  system  of.  recommended 10 

Regulations  regarding 59 

Provision  for  moderate,  on  land  and  improvements  thereon 55 

Opposition  to 55 

Rate  of.  determined  by  municipal  councils 56 

Suffrage  extended  to  people  paying 54 

Urbana.  imposed  on  rental  value  of  buildings 35 

Land  tax  preferred - "^5 

Tayabas,  Province  of: 

Conditions  in .  peaceful - 34 

Financial  conditions  of - - 398, 683 

Organization - -- ^^4 

Teachers: 

Reconnnendations  made  concerning,  by  Superintendent  Atkinson 38 

See  also  Education. 
23181—04 49 


7^M^  INDEX. 

Tecson  (insurgent  leader):  Page. 

Disturbances  caused  by - .  83 

Timber: 

Licenses — 

For  cutting 576 

Telegraphic  correspondence  concerning-  - _ 164 

"Wealth  of,  unexplored  . 725 

Tinio  (insurgent  leader): 

Disturbances  caused  by 33 

Tiosinte: 

Siifcessf ully  grown 598 

Tipton,  W.  N.: 

Appointed  chief  of  bureau  of  public  lands  .  - 354 

Tobacco: 

Area  cultivated 173 

High  duties ..- 289 

Decrease  in  exportation  of 506 

Diminished  production  of 512 

Towns: 

Organization  of,  postponed 56, 57 

Secretaries  appointed  for  each ......  5S 

Townships: 

President  of.  duties  and  powers  of 59 

Trade-marks.     (See  Patents,  trade-marks,  and  copyrights.) 

Transportation: 

Desire  for  new  laws 27 

Interisland,  charges  excessive 667 

Treason: 

Act  of  Philippine  Islands  Commission  defining  crime  of  _ 371 

Treasury: 

Amount  on  hand  July  1 ,  1901 386 

in  cash  on  hand 235 

Budget  of  the  city  of  Manila 389 

Copper  coin  in 237 

Customs-tariff  receipts ... 390 

Insular  budget 388 

Internal  revenue 393 

Loans  to  provinces 235 

Losses  on  account  of  fluctuations  in  silver 288 

Property  purchased  by  military  government ...  235 

Receipts  and  disbursements 386 

withdrawals 659 

Seized  funds  and  special  deposits 286, 887 

Statement  of  funds  in 655 

Sum  available  for  appropriation 386 

Troops: 

Native.     (See  Native  troops.) 

Spanish,  niimber  of,  in  islands 43 

Trozo  fire: 

Loss  of  property  in 562 

Tuberculosis: 

Danger  of  infection  from 17f 


INDEX.  757 

Union,  Province  of: 

Financial  conditions  of _._ _ ggg  ggo 

Vaccination: 

Progress  of . _ __ _ gg^ 

Result  of ,./,f- 

Vagrancy: 

Acts  of  the  Philippine  Islands  Commission  defining  and  punishing  495 
Vessels: 

Spanish  subjects  serving  as, officers  on ggg 

Visayans: 

Conditions  in _  r.. 

Vital  statistics: 

Birthrate f._. 

Death  rate  m  Manila . . ggo 

different  districts  of  city 554 

Deaths — 

Rate  of,  in  Manila  and  surrounding  suburbs 553  554 

Infant  mortality '  550 

Caused  from  lack  of  medical  attendance .   554 

From  malaria ggg 

"War,  Secretary  of : 

Dispatches  between  Commission  and 25 

Report  of '        ^k 

Water  supply:  

Improvements  needed 5^4 

Weather  bureau: 

Astronomical  and  magnetic  work  of 366  606 

Crop  service ^^^\l[[[[  [[[][[  366,604. 

Difficulties  encountered  by ogg 

Establishment  of  storm  signals '        g04 

Exhibit  at  Louisiana  Purchase  Exposition g05 

Importance  of ^„i 

Magnetic  observatory gQg 

New  apparatus ogg 

instruments  secured . g^g 

stations  established ogr 

Publications  of  .  ^^6- 

Repairs  to  mstruments _  qq- 

Reports  of „gg 

System  of  stations  and  equipment  provided  for I75 

"Weather  predictions  and  storm  warnings 3g5 

stations  - . _  nr.M 

Wilson,  Dr.  William  P.:  

Chairman  of  Filipino  exhibit  board 519 

Winslow,  Dr.  Henry  E.:  

Valuable  services  mentioned 335 

Wood,  Maj.  Gen.  Leonard:  

Appcjinted  governor  of  Moro  Province 537 

Woodlands:  

Private _                     _  _ 

Woods.    (See  Forests.) 


7(>8  INDEX. 

Worcester,  Dean  C:  Page. 

Ai)pointinent  of,  as  Commissioner  to  the  Philippine  Islands 5 

Subject  to  be  investigated  by,  assigned  to 31 

Wright,  Luke  E.: 

Appinutmeut  of,  as  Commissioner  to  the  Philippine  Islands 5 

Inaugural  addi-ess  of 723 

Subject  to  be  investigated  by.  assigned  to 31 

Zambales,  Province  of: 

Financial  conditions  of -  -  308, 683 

Zeller,  Dr.  George  A.: 

Efficient  service  mentioned 335 


o 


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